STATE OF NEW YORK 


SECOND REPORT 

OF THE 

Committee on Civil Service 

OF THE 

Senate of the State of New York 

Appointed to Investigate the Civil Service of the State 

of New York 


CLINTON T. HORTON, Chairman 
GEORGE F. ARGETSINGER 
JAMES A. HAMILTON 
IRVING J. JOSEPH 
HENRY M.SAGE 
GEORGE F. THOMPSON 
J. HENRY WALTERS 


TRANSMITTED TO THE LEGISLATURE JANUARY 3, 1917 


ALBANY 

J. B. LYON COMPANY, PRINTERS 
19 17 








STATE OF NEW YORK 

f'. £ j / .1. „ .JL' 6 * A './ 


SECOND REPORT 


OF THE 

Committee on Civil Service 

OF THE 


Senate of the State of New York 

Appointed to Investigate the Civil Service of the State 

of New York 


CLINTON T. HORTON, Chairman 
GEORGE F. ARGETSINGER 
JAMES A. HAMILTON 
IRVING J. JOSEPH 
HENRY M. SAGE 
GEORGE F. THOMPSON 
J. HENRY WALTERS 


TRANSMITTED TO THE LEGISLATURE JANUARY 3, 1917 


ALBANY 

J. B. LYON COMPANY, PRINTERS 
19 17 






















P. of D. 

APR 18 1917 


> P 
' A i 




X 


State of New York 


o 

i 

No. 29 


IN SENATE 

January 3, 1917. 


Second Report of the Senate Committee on Civil 
Service in Relation to the Standardization of the 
Public Employments of the State 


STATE OF FEW YORK 

Albany, January 3, 1917. 

To the Honorable, the President of the Senate: 

Sir. — The Senate Committee on Civil Service has the honor to 
submit its second report to the Legislature in relation to the stand¬ 
ardization of the public employments of the State of New York. 

Very respectfully yours, 

Clinton T. Horton, 

Chairman. 


































TABLE OF CONTENTS 


Introduction. 

First Report of Committee. 

Second Report. 

Investigation of the Administration of the Civil Service Commission. . . 

Limitations of Law and Inadequacy of Force. 

Reactionary Policies of Former Commissions. 

Constructive Work of the Present Civil Service Commission. 

Lack of Constructive Policy. 

Review of Appeals from Ratings. 

Date of Appeals. 

Necessity for Change of Policy and Procedure re Appeals. 

Classification of Positions by the Commission. 

Further Extension of Competitive Class. 

Provisional Appointments. 

Suspension of Rules Requiring Competition. 

Organization of the Commission and the Distribution of Functions. 

Illogical Distribution of Work. 

1. Character Investigation-. 

2. Departmental Studies. 

3. Medical and Physical Examinations. 

Proposed Reorganization of Departmental Staff. 

Administrative Bureau. 

Bureau of Service Records and Standard. 

Bureau of Examinations. 

Administration of Eligible Lists. 

Difficulty in Administering Eligible Lists. 

Defects in Present Plan of Administration of Lists. 

Improper Consolidation of Lists. 

Certification of Candidates at Widely Different Salary Rates.. . 

Indifference as to the Life of Certification Lists. 

Establishment of Unnecessary Lists. 

Recommendations as to the Administration of Eligible Lists. 

Methods of Advertising Examinations. 

Publicity and Extent of Advertising. 

Publicity Civen to Advertisements. 

Results of Advertising. 

Conclusions and Recommendations Regarding Advertising Methods 

Methods and Standards of Examinations. 

Methods of Making the Study. 

Organization and General Procedure of the Examining Division. 

Equipment. 

Filing Methods. 

Conduct of Examinations. 

Conclusions on General Procedure of Examinations. 

Standards of Examining Division. 

Subjects and Weights of Examinations. 

Content of Examination Papers. 

Use of Training and Experience as a Subject of Examination. 

Rating of Training and Experience Papers. 

Oral Examinations. 

Lack of Check in Rating Papers. 

Promotional System. 

Provision of Law. 

Meaning of Provision. 

Interpretation of Term “ Promotion ” as used by this Committee... 

[ 5 ] 


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21 *^ 


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22 

22 

23 

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32 

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c 


Report of Senate Committee on Civil Service 


PAGE 

Promotional System — Continued: 

Irregularity and Rapidity of Salary Increases and Promotions. 41 

Promotion without Competitive Examination. 42 

The Proposed Practice in Promotional Examinations. 44 

Subjects and Weights in Promotional Examinations. 44 

Training and Experience. 45 

Efficiency.. 45 

Duties. 45 

Procedure in Promotional Examinations. 40 

Length of Service. 47 

Preparation of Service or Efficiency Records. 47 

Comment re Office Records and Forms. 47 

Reports to the Legislature. 48 

Classification of the Judicial and County Service. 50 

County Organization. 50 

Multiplicity of Titles; Inequalities of Compensation. 51 

Clerical Service. 51 

Irregularities in Salaries of Elective Officers. 52*^ 

Further Comparison of County Service.\ . 53 

Sheriff’s Offices. 54 

Court Decision. 55 

Confidential Positions. 55 

Necessity for Extending the Study. 56 

State Courts. 56 

Villages. 57 

Municipal Commissions of the State. 59 

Criticism of Reports of Municipal Commissions. 59 

Lack of Standard Classification. 61 

Standardization Programs Being Discussed. 62 

Forms. 63 

Examinations. 63 

Promotional Examinations. 63 

Miscellaneous Irregularities. 64 

Supervision by State Commission and its Staff. 65 

Terms of Municipal Commissioners. 65 

Suggestions re Organization of Staff of State Commission and its Contact 

with the Civil Service of Municipalities and Counties of the State. 66 

Proposed Subdivisions. 67 

Tables. 67 

The Administration of the Proposed Districts. 68 

Expense. 69 

General Plan. 69 

Personnel and Location of District Offices. 70 

Statistical Tabulations of Civil Service Functions in: 

Judicial Districts i and ii. 71 

Judicial District iii. 71 

Judicial District iv. 72 

Judicial District v. 72 

Judicial District vi. 73 

Judicial District vii. 73 

Judicial District viii. 73 

Judicial District ix. 74 

Table I. 75 

Table II. 101 

Table III. 109 

Table IV. 110 

Table V. 112 

Table VI. 115 

























































SECOND REPORT 


OF 


SENATE COMMITTEE ON CIVIL SERVICE 


INTRODUCTION 


FIRST REPORT OF COMMITTEE 


On March 27, 1916, the first report of the Senate Committee 
on Civil Service was submitted to the Legislature. This report 
contained analyses of employment conditions with discussions of 
existing defects interfering with effective management from the 
viewpoint of the personnel. It dealt essentially with inequalities 
in rates of pay and conditions governing appointment to the service 
and advancement and promotion after original appointment. In 
order to correct these inequalities, a pro forma bill amending the 
civil service law in relation to salaries and grade standards was 
submitted. This bill contemplated such changes only as would he 
necessary to make effective the standards proposed, the application 
of the specifications for personal service, changes of title and the 
creation of a bureau for the keeping of service records and ratings 
together with such other work as would he incident to the 
standardization program. 

An erroneous impression may have been conveyed by a part of 
the discussion in the first report as to when changes in salaries 
were to take effect. A reading of sections 42-46 (page cxxiii) of 
the bill introduced with the first report should make this clear. 
Upon the passage of the bill, the new titles will become effective, 
without affecting the status or salary of any person now in the 
service. The standardized salaries will become effective only in 
the filling of future vacancies. The Committee feels that, if this 

[ 7 ] 



8 Report of Senate Committee on Civil Service 

is thoroughly understood, there will he little or no opposition to 
the general program. 

SECOND REPORT 

Upon the completion of the first report, the Committee began 
an inquiry into the administration of the existing law, for the 
purpose of determining to what extent the practice of the Civil 
Service Commission should be revised, in order to enforce the new 
standards and to bring about a more efficient administration of 
the present law; and an analysis of the present law, in order to 
determine in what way it could best be changed to bring about a 
more businesslike administration in the various departments and 
municipalities of the State. It is the purpose of this report to set 
out the results of this inquiry. 

INVESTIGATION OF THE ADMINISTRATION OF THE CIVIL 

SERVICE COMMISSION 

LIMITATIONS OF LAW AND INADEQUACY OF FORCE 

The limitations of law and inadequacy of staff assistance have 
hampered the Civil Service Commission in perfecting a system of 
control to such an extent that the Civil Service Commission cannot 
he held responsible for present unstandardized conditions. The 
first report suggests a comprehensive amendment to the present 
law which, would install the new standards and create a Division 
of Standards and Service Records and thus equip the Commission 
for its logical tasks. In addition to this, the examining force 
should be greatly strengthened. 


REACTIONARY POLICIES OF FORMER COMMISSIONS 

The result of the inquiry into the procedure of the Civil Service 
Commission shows conclusively that the reactionary policies of 
former commissions in matters of appeals in reratings, in the 
classification of positions and the suspension of rules requiring 
competition, have weakened this agency of the State government 
and brought it into disrepute, through a perfunctory or incon¬ 
sistent administration of the law. 


Standardization of Public Employments 


9 


CONSTRUCTIVE WORK OF THE PRESENT CIVIL SERVICE COM¬ 
MISSION 

The present Civil Service Commission has made marked 
advances in the constructive character of its work and definite 
improvements undertaken. The steps already taken to correct 
improper conditions handed down from its predecessors confirm 
some of the conclusions of this report. Furthermore, the present 
Commission urges that the work of this Committee be compre¬ 
hensive, and indicates that it will take immediate action on any 
recommendations with which it is in accord, without legislation 
in regard thereto. 

Criticism of civil service policy or methods cannot, in view of 
what has been done during the last fiscal year to correct false 
policies and weaknesses of the system, be construed unfavorably 
to the present board, although it may specify defects in procedure 
that have survived since the first year of its administration. 

LACK OF CONSTRUCTIVE POLICY 

Analysis of the activities of the Civil Service Commission dur¬ 
ing the past six years, to and including 1915, based upon the 
minutes of the Commission and other records, shows the lack of 
a consistent policy in the discharge of the following administra¬ 
tive functions:— 

First.-— Eeview of appeals from rating's. 

Second.— Classification of positions. 

Third.— Provisional appointments. 

Fourth.— Suspension of rules requiring competition. 

REVIEW OF APPEALS FROM RATINGS 

Eligible lists are established for persons who have passed com¬ 
petitive examinations conducted by the Commission. Where the 
candidate can prove that there has been an erroneous rating, the 
rules and regulations give opportunity for appeal. An examina¬ 
tion of the appeals during the years 1908 to 1914, inclusive, par¬ 
ticularly during the last four years of that period, reveals a policy 
which is unsound and must result in the destruction of confidence 
in the work of the Civil Service Commission. In many instances, 





10 


Report of Senate 


Committee on Civil 


Service 


there was apparently no excuse for, or explanation of, the action of 

the Commission. The large number of appeals indicates that the 

persons making them anticipated that they would be granted. The 

number of appeals taken should be in proportion to the number 

of errors made by the examining staff and when many appeals are 

granted, if the action is proper, the inference is that the examining 

staff is weak or that outside influences may control. The follow- 

«/ 

ing table shows the number of appeals from 1908 to, and 
including, July, 1914: 


YEAR 

Number 

Granted 

• 

Dismissed 

R A.TIO 

Granted to 
dismissed 

1908. 

131 

39 

92 

1 to 2.4 

1909. 

81 

14 

07 

1 to 4.8 

1910. 

77 

14 

00 

1 to 4.8 

1911. 

180 

80 

100 

1 to 1 .2 

1912. 

183 

08 

115 

1 to 1.7 

1918. 

210 

111 

99 

1 to .9 

1914. 

239 

118 

121 

1 to 1.02 


Analysis of the action on appeals shows striking inconsistencies 
in the decisions of the Commission. Action was often decidedly 
irregular and apparently controlled by political considerations in 
the granting of reratings. These irregularities were particularly 
noticeable during the years 1911 to 1914, inclusive. A voluminous 
list of them is on file in the office of the Committee. 

Inst. ances of concentration of appeals on particular lists indi¬ 
cate, however, that the fault may partly be attributed to careless¬ 
ness or overwork of the staff in rating papers and that changes in 
such ratings may have been well founded. In the following list 
a particularly large number of changes was made: 

Court Attendant, 1911, 39 changes. 

Court Attendant, New York, 1911, 45 changes. 

Asst. Civil Engineer, Grade 9, Public Service Commission, 1st 
Pist., 1910. Entire list rerated. 

Director or Supt. (female), 1914, 6 changes on a list of 8 candi¬ 
dates. 



























Stan daedization 


of Public Employments 


11 


The loose practice of former Commissions relative to appeals is 
particularly noticeable from the viewpoint of the dates of appeals 
in relation to the dates of examinations. 

Regulation VI of the rules and regulations provides that appeals 
must he made within thirty days after the date of the candidate’s 
notice of standing. Appeals, however, were granted two, three 
and even four year after the establishment of the eligible list. 

The following table shows the number of reratings from such 
lists since 1010: 


DATE OF APPEALS 



NECESSITY FOR CHANGE OF POLICY AND PROCEDURE RE APPEALS 

Where so many thousands of technical and clerical employees 
are being constantly recruited, an overworked staff will, of course, 
make errors. Procedure must, therefore, be provided for the 
reconsideration of ratings which may be unjust from this cause. 
Changes in ratings, however, should be authorized only where 
there has been some manifest error adversely affecting the stand¬ 
ing of the appellant. 

The following paragraph from the thirty-third annual report 
of the Civil Service Commission for the year 1915 is illuminating: 


“ So many of the appeals allowed by our predecessors 
seem to us on investigation, to be allowed for insufficient 
reason, that we set aside all reratings of appeals and restored 
all eligible lists to their original condition, allowing, however, 
such candidates affected to renew their appeal. Eew of the 
eligibles affected have renewed their appeals.” 































12 Report of Senate Committee on Civil Service 

CLASSIFICATION OF POSITIONS BY THE COMMISSION 

The Constitution provides that “ appointments and promotions 
shall be made according to merit and fitness to he ascertained, 
so far as practicable, by examinations, which, so far as practi¬ 
cable, shall be competitive.” 

Section 12 of the State Civil Service Law provides for the 
enforcement of this provision. It gives the State Civil Service 
Commission jurisdiction over all positions in the classified service 
and empowers it to group, with reference to competitive require¬ 
ments as the basis for appointment, all such positions within 
certain legal divisions known as ki exempt,” u competitive ” and 
“ non-competitive.” 

In section 13 the exempt class is defined. Paragraphs 1, 2 and 
3 specifically designate certain officers who are exempt and sec¬ 
tion 4 adds, “ all unskilled laborers and such skilled laborers as are 
not included in the competitive class and, in addition thereto, 
there may he included in the exempt class all other subordinate 
offices for the filling of which competitive or non-competitive 
examinations may not he found to he practicable.” The classifi¬ 
cation of positions under this provision is one of the most impor¬ 
tant functions of the Commission as a board, because it is basic 
to the enforcement of the constitutional requirement of com¬ 
petition. The following tables show the divergence of opinion of 
various commissions as to the practicability of holding exami¬ 
nations for positions. 

The following table shows, by years, positions which have been 
transferred from the exempt class to the competitive class by 
action of the Civil Service Commission in the years specified: 



1910 

1911 

1912 

1913 

1914 

1915 

T otal 

State. 

39 

51 

48 

t 

127 

270 

542 

County. 

6 

5 

11 

3 

22 

23 

70 

City and village. 



30 

1 


14 

45 







Total. 

45 

56 

89 

11 

149 

307 

657 


The following table shows, by year, the positions which have 
been transferred from the competitive class to the exempt 































Standardization of Public Employments 


13 


class by action of tlie Civil Service Commission in the years 

c/ 

specified: 



1910 

1911 

1912 

1913 

1914 

1915 

Total 

State. 

28 

152 

152 

84 

161 

68 

645 

County. 

25 

81 

31 

16 

118 

18 

289 

City and village. 

36 

25 

2 

1 

1 


65 

Total. 

89 

258 

185 

101 

280 

86 

999 


The following table shows, by years and by class or service, the 
number of positions which have been transferred from the com¬ 
petitive class to the exempt class by action of the Civil Service 
Commission in the years specified: 


SERVICES 

1910 

1911 

1912 

1913 

1914 

1915 

Total 

Managerial. 

7 

23 

5 

11 

39 

15 

100 

Clerical. 

5 

57 

25 

34 

44 

18 

183 

Professional and scientific... . 

7 

10 

30 

11 

23 

18 

99 

Educational. 

1 


1 


7 


9 

Investigational and examining 

6 

11 

78 

71 

35 

6 

157 

Inspectional. 

1 

48 

10 

4 

9 

11 

83 

Institutional. 


3 





3 

Skilled labor. 



3 

i 



4 

Labor. 








Unclassified 

i 



. 

2 

4 


7 









Total. 

28 

152 

153 

00 

te- 

161 

68 

648 


The following table shows, by years and by class or service, the 
number of positions which have been transferred from the exempt 
c-lass to the competitive class by action of the Civil Service Com¬ 
mission in the years specified: 


SERVICES 

1910 

1911 

1912 

1913 

1914 

1915 

Total 



9 

1 

3 

3 

60 

76 

Clprinfil . 

9 

14 

13 

. 

25 

62 

123 

Professional and scientific.... 

6 

12 

7 

2 

21 

35 

83 



7 




13 

20 


23 


15 


5 

63 

106 

TriQnppf ionwl . 


9 

11 


46 

35 

101 






12 


12 






10 


10 

T .fth/vr 

i 




5 


6 




1 

2 


2 

5 









T otal. 

39 

51 

48 

7 

127 

270 

543 

























































































































































14 


Report of Senate Committee ox Civil Service 


The following table shows by classes of service and depart¬ 
ments the number of positions which have been transferred from 
the non-competitive and competitive classes to the exempt class 
during the years 1910 to 1915 , inclusive, by action of the Civil 
Service Commission: 


DEPARTMENT 

1 

15 

•fi 

o 

bC 

1 fl 
! 2 

75 

o 

• H 

F-. 

CD 

o 

C 

■ 4 - 

P 

.£ 

‘Z 

O P 

*3 R 

to 

CD 

tM 

o 

Fh 

Ph 

*3 

c 

o 

•-C 

c3 

o 

dd 

W 

Investigational and 

examining 

0 

■a 

o 

o 

0> 

a 

ctj 

i 53 

a 

o 

! '-3 
P 

’■S 

co 

C 

)—i 

1 

1 

U 

O 

CD 

1 

L s 

j rf 

1 * 

V 

cd 

• 

CO 

a 

75 

fl 

| 

o 

£-| 

B 

C 

D 

E 

F 

G 

H 

1 J 

K 

* 


Agriculture. 

6 

4 

1 


5 

1 


|. 



17 

Attorney-General. 

1 

2 

34 


i 





38 

Architect. 



4 




i 



4 

Banking. 

1 

3 





1 

. 



4 

Board of Claims. 


3 





i 



3 

Bronx Parkway Commission. 

1 


3 




"1 ' 



4 

Comptroller. 

3 

19 

3 

1 

77 


' ' ! 



103 

Commission to Investigate Port Condi- 












tions and Pier Extensions . 

1 


1 








2 

Conservation . 

12 

17 

13 



37 




[.... 

79 

Efficiency and Economy . 

3 

5 

1 


"i' 






10 

Executive . 

. . . . 

3 

1 







4 

Excise . 


6 



5 

] 

i 



*12 

Fiscal Supervisor . 


3 




3 




6 

Foods and Markets . 

1 

i 1 








9 

Ghent Celebration Commission . 


1 





! 



] 

Health . 

1 

2 

1 







4 

Health Officer, Port of New York . 


i 

2 

:::: 




i 4 



7 

Highways . 

2 

n 




3 





16 

Insurance . 


7 

2 

.... 

n 






25 

Interstate Bridge and Tunnel Com- 











mission. 


1 



i 






2 

Labor. 

4 

8 

\v 


In 

ii 





42 

Miscellaneous Reporter. 


1 









1 

New York State Nautical School. 


1 

.... 







1 

New York State Agricultural School.... 

1 

1 



i i 




2 

Palisades Interstate Park Commission... 

3 

6 






9 

] l 



8 



i 


3 



1 

1 2 

Public Buildings. 





{ 




1 

i 

9 

Public Works. 


2 






Public Service Commission, Second Dis- 












trict . 

3 

2 

9 ! 



i ! 





g 

Retired Judges, Court of Appeals. 


1 









1 

Saratoga Reservation. 

1 


1 


yj 






1 

Special Examiner and Appraiser Canal 











Lands. 



i ! 


2 






9 

Athletic Commission. 

1 

1 









2 

Secretary of State. 

1 

10 

i i 



6 j 





18 

Commission for Blind . 


1 

i 

7 







g 

Commission in Lunacy . 



i 



' Yl 





9 

State Engineer. 


5 

4 








9 

State Fair Commission . 

1 

2 


. . . . 
...J 







ft 

State Farm for Women. 

1 


1 








] 

Fire Marshal . 

3 

3 

2 

.... 

6 

9 





99 

Hospital Commission . 

1 

3 

2 


1 

3 





10 

Teachers’ Retirement Fund Bureau . 

1 


1 








1 

Superintendent of Elections . 

4 

12 







1 


1 0 

Supreme Court, Appellate Division . 


4 

1 

1 



I 



1 

7 


1 

3 

10 


24 





38 

1 ilden Memorial Association . 


1 









1 

o 

University State of New York. 

6 

2 

1 








Watkins Glen Commission . 

1 










1 

Weights and Measures . 

9 










9 

Workmen’s Compensation Commission.. 

33 

17 

5 

• • • i 

7 

1 




2 

65 

Total. 

LOO 

L83 

99 

9 jl 

57 

83 j 

3 j 

4 


7 

645 




















































































































































































































Standardization of Public Employments 


15 


The following table shows by classes of service and depart¬ 
ments the number of positions transferred from the exempt 
class to the competitive and non-competitive classes, during the 
years 1910 to 1915, inclusive, by action of the Civil Service 
Commission: 


DEPARTMENT 

Managerial 

Clerical 

Professional 

and scientific 

Educational 

Investigational and 

examining 

Inspectional 

Institutional 

Skilled labor 

Labor 

Unclassified 

Total 


B 

C 

D 

E 

F 

G 

H 

J 

K 

* 


Agriculture. 

1 

1 

1 








3 

At torney-G eneral. 



1 








1 

Banking. 


2 



5 






7 

Barge Canal Terminal Commission. 

1 










1 

Board of Claims. 

1 









1 

Board of Port Wardens. 









1 

1 

Board Statutory Consolidation. 

1 









1 

Bronx Parkway Commission. 


1 

1 








2 

Comptroller. 


12 

2 


27 






41 

Commission to Investigate Port Condi¬ 
tions and Pier Extensions. 


1 







1 

Commission to Select Site for New York 
Trainin'* School for Boys. 


1 









1 

Conservation . 

11 

14 

12 


1 

32 





70 

Education . 

2 

2 

2 

13 



1 


20 

Effip.ienev and Eeonomv. 

2 

6 

2 







10 

Executive . 


4 









4 

Exeise . 


4 



1 






5 

Eise.a.l Snnervisor . 


2 

1 


3 





6 

HiffhwavR . 


5 

1 








6 

TIiidson-Enltnn Commission 

1 









1 

Immigration Commission. 

1 










1 

Tpsiira.nc.fi . 


1 

2 


4 






7 

Interstate Bridge and Tunnel Com- 
mission . 





1 






i 

T.ahor . 

5 

6 

3 


2S 

3 





45 

Mew York State Charter Commission. . . 


2 

5 






7 


1 










1 

Palisades Interstate Park Commission... 

7 

IS 



34 

12 

10 

5 


86 

Prison . 






2 

2 

Public. RnilHincrs . 


1 









1 

Pnhlie Works . 


2 









2 

Public Service Commission, First District 
Public Service Commission, Second Dis- 
trict- . 


1 




1 





2 

1 

3 







4 



1 








1 


4 

6 



7 





17 

Special Examiner and Appraiser of Canal 





2 






2 



1 









l 




7 

1 






8 

3 




3 









6 

4 








10 


3 









3 


1 










l 


2 

4 

1 



15 





22 


1 

2 

3 


1 

5 





12 


1 







1 


3 

8 

2 








13 


1 

2 

9 


28 






40 


1 








1 


1 









1 

Workmen’s Compensation Commission.. 

33 

17 

5 


7 

1 




2 

65 








Total. 

76 

123 

83 

20 

106 

101 

12 

10 

6 

5 

542 








1 



































































































































































16 Report of Senate Committee on Civil Service 

Analysis of these tables shows, not only the extent of this 
divergence of opinion, but also the apparent tendency to follow 
the dictates of department heads and political leaders in trans¬ 
ferring positions from the competitive to the exempt class for the 
purpose of removing incumbents who are politically undesirable 
or in transferring positions from the exempt class to the com¬ 
petitive service in order to protect a desirable incumbent from the 
adverse action of a later administration. This juggling with the 
classification by the Civil Service Commission is one of the most 
serious drawbacks to the operation of the Civil Service Law’, 
because it tends to disrupt the examination system, breaks down 
the line and opportunity for promotion, makes the tenure of 
employment uncertain and generally demoralizes the personnel 
of the service. This Committee believes that the lack of inde¬ 
pendence on the part of recent Civil Service Commissions created 
to develop and enforce the merit system is very largely respon¬ 
sible for the attitude which is today generally expressed toward 
this branch of the government. 

FURTHER EXTENSION OF COMPETITIVE CLASS 

In the first report submitted to the Legislature by this Com¬ 
mittee, the recommendation was made to extend the “ competitive ” 
class to include those positions now in the exempt class for which 
competition is obviously practicable. Analysis of the work require¬ 
ments of positions in the exempt class in the several executive 
departments indicates, that in consonance w 7 ith the requirements 
of the Constitution and statutes, at least one-half of the exempt 
positions, in 1915, should be transferred to the competitive class. 
The State Civil Service Commission in its last annual report 
recognized this condition and will undoubtedly exercise its powers 
to make the necessary changes. 

PROVISIONAL APPOINTMENTS 

The Civil Service Law, article II, section 15, subdivision 1, 
provides for provisional or temporary appointments to a vacancy, 
pending the establishment of an eligible list, vdiere there are 
urgent reasons for filling such positions before a list has been 
established. This is a makeshift arrangement which enables the 
administrative heads to make the appointment subject to the 


Standardization of Public Employments 


17 


approval of the Commission, pending the preparation of an 
eligible list and certification therefrom. The abuse of such ail 
arrangement is shown by the fact that appointments under this 
provision increased from 244 in 1911 to 1,108 in 1914, and that 
the law limiting such appointments to two months was openly 
violated. Such limitation often produces conditions in the State 
service which would not be tolerated in business. The present 
Commission recognized this and suggested an amendment to the 
law extending the time of provisional appointments to four 
months, in order to give time for examination, and has enforced 
the time limits of such appointments to the letter. Largely through 
the efforts of the present Commission, the number of provisional 
appointments during the year 1915 was 59 per cent less than 
those made in 1914. 

SUSPENSION OF RULES REQUIRING COMPETITION 

The Civil Service Commission may by special action exempt 
from examination any person who shall render professional, scien¬ 
tific or other expert service of an occasional or exceptional char¬ 
acter, or who shall render service for which, because of its 
temporary and exceptional character, an examination would not be 
practicable. The latter exception shall be allowed only in cases 
where the compensation in any one year shall not exceed $300. 
(Eule VIII, section 9.) The Commission, however, may suspend 
this limitation by special resolution. Such exceptions should be 
limited. It is difficult, therefore, to justify 1,863 exceptions which 
were made under this rule in 1908 and the 3,353 made in 1914. 
These latter figures represent an increase of 80 per cent during 
the last six years. The principal cause for this large number of 
temporary appointments is the difficulty arising from the geo¬ 
graphical distribution of the State’s activities and the subsequent 
necessity for appointment in particular localities. This Com¬ 
mittee believes that a considerable reduction of these exceptions 
might be effected by a more rigid application of the provision per¬ 
mitting temporary appointments from eligible lists in force, or by 
a more judicious anticipation of the need for occasional or excep¬ 
tional service and the creation of lists to supply this need. 


18 


Report of Senate Committee on Civil Service 


ORGANIZATION OF THE COMMISSION AND THE DISTRI¬ 
BUTION OF FUNCTIONS 

The departmental organization is broken lip into two primary 
units known as the Administrative Division and the Examining 
Division. The former is under the direction and control of the 
Secretary of the Commission, the latter under that of the Chief 
Examiner. Both of these are statutory offices. Upon the Admin¬ 
istrative Division, which includes fifteen regular employees, 
devolves the following clerical functions: 

a. Preparation of eligible lists. 

b. Preparation of roster of employees. 

c. Audit of payrolls. 

d. Answering and filing of correspondence. 

The Examining Division, including sixteen employees, is 
charged with the technical work relating to examinations and 
miscellaneous clerical work pertaining to the business of the office. 
Its principal functions are: 

a. The preparation of application blanks. 

b. The receipt, review and recording of applications. 

c. The determination of eligibility of competitors. 

d. The preparation of examination questions. 

e. The conduct of examinations. 

f. The rating of examination papers. 

g. The preparation of reports of ratings of examinations as 
the basis for eligible lists. 

ILLOGICAL DISTRIBUTION OF WORK 

The present distribution of work causes unnecessary duplication 
of some of the routine of both the administrative and the examin¬ 
ing divisions and also complicates the problem of the latter unit. 
The technical functions incident to the preparation, conduct and 
rating of examinations should be confined entirely to the examina- 
tion division and this division should have no part in the purely 
clerical functions which are now performed by the Chief 


Standardization of Public Employments 


19 


Examiner. The lack of specialization of assignments to the 
various members of the staff and the lack of a clearly defined and 
systematic arrangement of the internal workings of the adminis¬ 
trative division are due entirely to the fact that the volume of 
work is altogether too large for the present personnel. The limi¬ 
tations of the staff demand a constant shifting from one assignment 
to another and at times a concentration of the entire force on one 
or two classes of work. In its first report, this Committee pointed 
out that the functions of the Civil Service Commission should he 
extended so as to include the enforcement and installation of new 
standards and regulations proposed and to provide for the instal¬ 
lation and maintenance of service records. It also recommended 
a bureau in the Commission to perform these duties. 

The present staff is entirely inadequate even for the performance 
of the functions contemplated by the existing law and rules in the 
three following respects: 


1. Character Investigation 

Xo agency has been provided for character investigation 
and verification of statements as to education, training and 
experience, which are bases of eligibility or at least to factors 
of the examination. Such an agency is essential in order 
to properly recruit employees. Independent of the inves¬ 
tigation that should be required in all cases to verify the 
truth of statements made concerning experience and training 
and, more difficult as it is really more important, is the 
investigation of character. 

At present, examiners rate the factor, u Training and 
Experience/ 7 directly upon the application form. They 
should rate this factor, upon a separate sheet, which does not 
disclose the identity of the applicant. 

On the application form, appear, also, vouchers of char¬ 
acter. The worth of these, the Commission makes no attempt 
to investigate, so the appointing officer is left to make what¬ 
ever investigation is possible, at a juncture when, presumably, 
he can ill afford the time. 

A remedy for some of the abuses that must inevitably 


20 Repoet of Senate Committee on Civil Service 

creep in will be suggested in a later chapter devoted to the 
Municipal Commissions, but for the purpose of character 
investigation by the Commission in Albany a qualified 
Investigator is a necessity. 

2. Departmental Studies 

There is no adequate examining staff for the current study 
of departmental conditions, for the review and verification 
of requests for positions and for the collection and interp ro¬ 
tation of information necessarv for the determination of the 

t/ 

necessity of a new examination or for the review of the work 
of municipal commissions. 

The number of examinations held and of the eligible lists 
established, from which no appointments are made, is com¬ 
mented upon elsewhere in this report and in the last report 
of the Civil Service Commission. An adequate staff to 
investigate the conditions that make such loose practice 
possible should be charged, also, with the task of keeping up 
organization charts, and of working out re-organization 
charts. In the preparation by this Committee of the original 
organization charts of the various departments, many changes 
were so obvious that the department heads made them at 
once without suggestions from the Committee. 

Further than this, such a staff should investigate the other 
conditions of work in each department, as, for instance, the 
distribution of the work through the year. Such an analysis 
was made in the department of the Secretary of State by 
the staff of this Committee, with the result that the time of 
issuing the licenses for certain motor vehicles was changed 
to another period of the year when work was lighter, reducing 
the necessity for temporary personal service to a minimum. 

3. Medical and Physical Examinations 

In enumerating the imperative needs of the State Civil 
Service Commission, the necessity of a Medical Examiner, 
permanently attached to the staff, has been mentioned and 
recommendations have been made that such action be taken 
as will insure the services of a competent medical examiner 
to the Commission. 


Standardization of Public Employments 


21 


In view of the demand for a retirement and pension system 
that must be scientifically designed and administered, it is 
of the greatest importance that medical and physical examina¬ 
tions be inaugurated, as an integral part of the system of 
examinations for original entrance. Moreover, if the ques¬ 
tion of employment is to he considered merely from the stand¬ 
point of efficiency, this consideration alone demands a rigid 
medical and physical examination. 

In the police and fire departments of cities, it has always 
been recognized that health and strength are fundamentals 
of efficiency and the primitive instinct of self preservation has 
long since demanded that these two departments be recruited 
from the flower of the physical manhood of every community. 
For some reason or other, the fact that health is the “ sine 
qua non ” of efficiency in any line of endeavor has been 
overlooked. 

The City of Hew York, within the last few years, has made 
medical and physical examination a part of every entrance 
examination. The results in increased efficiency have more 
than justified the additional expense necessary to maintain 
an adequate staff for such examinations. 

The Committee, therefore, urges particularly that the 
appropriations to the State Civil Service Commission be 
made ample, first, to provide for the work now imperative 
under existing statutes; second, to lay a foundation for the 
work which must come if the subject of retirements and 
pensions is to be carried out in a businesslike manner; third, 
to improve the efficiency of the State Commission. 

PROPOSED EEORGiLNIZATION OF DEPARTMENTAL STAFF 

The staff of the Commission should be reorganized to provide 
for a better distribution of the present work and the inclusion of 
additional functions contemplated by the existing law and those 
proposed in the new law which should follow this report. This 
proposed reorganization may be outlined as follows: 

Administrative Bureau 

Division of Filing (correspondence, documents, examina¬ 
tion papers, etc.). 

Division of Information and Complaints. 


Report of Senate Committee on Civil Service 


oo 

Zj Zj 


Division of Applications and Certifications. 

Division of Payroll Audit. 

Bureau of Service Records and Standards 

Division of Service Records. 

Division of Departmental Organization and Procedure. 

Bureau of Examinations 

Technical Division. 

Clerical Division. 

Division of Character and Experience Investigation. 

ADMINISTRATION OF ELIGIBLE LISTS 

The administration of eligible lists to insure the fair and just 
treatment of candidates and the certification of properly equipped 
candidates to the departments is one of the most important func¬ 
tions of the Commission. During the years 1911 to 1914, over 
1,100 eligible lists were established as the result of competitive 
examinations. The methods of keeping these lists and recording 
certifications and appointments are very complicated and involved 
and show evidence either of carelessness or lack of time on the part 
of the administrators thereof, for the proper recording of all the 
information that ought to he placed thereon. 

DIFFICULTY IN ADMINISTERING ELIGIBLE LISTS 

There are two reasons why eligible lists are difficult to 
administer: 

First.—The application of the “ one in three ” rule. This 
rule provides that, “ the Secretary shall * * * certify 

to the appointing officer for appointment * * * the 

names of the three persons, if there he as many, standing 
highest on the list. If the appointing officer shall notify the 
Commission of more than one vacancy to he filled, the 
Secretary shall certify to the appointing officer the names of 
as many persons as there are vacancies to be filled, with the 
addition of two names. Eo person shall be certified from an 
eligible list more thon three times to the same officer for the 
same or similar position at the same rate of compensation, 
except at the request of such officer. From the persons 
whose names are so certified, the appointing officer shall make 
a selection to fill the vacancy or vacancies.” 



Standardization of Public Employments 


23 


The “ one in three ” rule makes it difficult to keep track of 
certifications, to know when a candidate is finally passed and to 
keep the record accurately, particularly in view of the fact that 
each person is entitled to three certifications to each department 
head. The two requirements, the one of competition as provided 
by the Constitution and the other, the certification of three names 
intended for a proper consideration of the candidate, make the 
administration of eligible lists inherently difficult. 

The form of eligible lists now in use, however, and the method 
of recording certifications have long since been outgrown and have 
a tendency to multiply the possibility of errors. In the course 
of the examination conducted by the staff of this Committee, 
eighty-nine apparent irregularities were discovered. Further 
investigation revealed the fact that all but three of these irregu¬ 
larities were due to the methods of recruiting. In the case of the 
three instances mentioned, the information developed was too 
fragmentary for a judgment. 

The second difficulty in the administration of eligible lists is 
due to the rule requiring the appointment of candidates with 
reference to the place of residence. (See section 14 of the Civil 
Service law.) These requirements not only make the adminis¬ 
tration of eligible lists difficult and complicated, but often result 
in the selection of unqualified candidates who may be low on the 
list. 

DEFECTS IN THE PRESENT PLAN OF ADMINISTRATION OF LISTS 

The present methods of administration are defective in the fol¬ 
lowing respects: 

Improper Consolidation of Lists 

Under the present practice the consolidation of several lists, 
before the expiration of the minimum term of such lists, is 
permitted. Where a new list is established owing to the 
danger of exhaustion of the first, the Commission often 
effects the consolidation of old lists with the new lists by 
transferring candidates on the first list to positions on the 
latter, according to the average obtained. Under this practice, 
the person standing, for instance, twenty-first on the first list may 
stand eighty-first on the second. It is possible that his standing 
on the later list may exclude him from appointment which lie 


24 Report of Senate Committee on Civil Service 

would liave received if the original list had continued for the 
minimum period. 

The extent to which this practice is carried, the number of 
candidates affected, and the change of rank are shown in volumi¬ 
nous data filed in the records of this Committee. The Civil 
Service Commission should at all times be free to cancel or destroy 
an eligible list which is unsatisfactory in respect to qualification 
of candidates. But there is no reason why a satisfactory list, i. e., 
a list on which the candidates are qualified, should be destroyed 
or changed before the minimum period has expired. Just treat¬ 
ment of those on this list should forbid such action. On the other 
hand, there is no reason for transferring to a new list former 
eligibles who have not been reached or appointed, on a list which 
should have expired. 

It has been urged that the practice of consolidating such lists 
is necessary because of the heavy demand for certifications from 
a department such as the Public Service Commission of the first 
district. These demands would exhaust a list or several lists 
with respect to the Public Service Commission before the mini¬ 
mum period had run. This explains why new lists should be 
established for such departments, but it does not indicate why the 
eligibles on the first list should he adversely affected with respect 
to other departments which had not drawn on the earlier list 
for certifications. It is out of keeping with the principles of the 
merit system to reduce the standing of a candidate, before the 
expiration of the period of his eligibility, to such an extent that 
he loses opportunity for certification of which he had been assured 
through such competition. 

Though a change in the method of recording certifications, the 

objections that arise from the loss of records in the transfer mav 

» 

be eliminated. 

Certification of Candidates at Widely Different Salary Bates 

The practice of making appointments from the same eligible 
lists for work of the same nature at widely varying salary rates 
was commented upon in the first report of this Committee. In 
numerous cases, candidates are required to state in advance the 
minimum salary that they would accept and whether they would 
accept appointment at an institution. Abuses arising from cer- 


Standardization - of Public Employments 


25 


tifications made from the same list at widely different rates have 
been a very important factor in bringing about the nnstandardized 
conditions obtaining at present. The standardization program as 
proposed will prevent these. 

Indifference as to the Life of Certification Lists 

Upon request of departments, lists of eligibles are certified 
from which appointment is to be made. This list is termed 
‘‘Certification List.'' Investigation into the practice of the 
State Commission reveals that there is apparently no limit set to 
the life of a certification list as the law is silent in regard to this 
particular point. There is no reason why such lists should be 
allowed to stand for more than ten days as a maximum. Under 
present practice, the appointing officer is permitted to wait, in 
some instances, as long as twenty-eight months before making an 
appointment. By this means, he “ starves out ” candidates stand¬ 
ing high on the list and those who ought logically to be appointed 
to the position and reaches some particular favorite who may be 
at the bottom of the list. This practice is so well known in civil 
service administration and the reason for such delay generally so 
obvious that the Commission should take steps to correct any 
possibility of abuse by it in the future. 

Establishment of Unnecessary Lists 

In the clerical service alone, between 1911 and 1915, there were 
nine eligible lists created from which no appointments were made, 
and eight lists created from which less than five appointments 
were made. All of the appointments from these lists could have 
been made from other available lists. The total number of lists 
established in this period, from which no appointments were made, 
was 123. On these lists were 2,443 names. The residence clause, 
already commented on, is a complicating factor in this connection 
and entails much additional labor. For instance, during the life 
of one eligible list, eight similar lists had to be established to 
cover geographical distribution inadequately represented on the 
first list. 


26 


Report of Senate Committee on Civil Service 


RECOMMENDATION AS TO THE ADMINISTRATION OF ELIGIBLE LISTS 

To improve the present practice of administration of eligible 
lists, the following recommendations are made: 

First.— The discontinuance of the consolidation of un¬ 
expired eligible lists. 

Second.— The restriction of certification from a single 
list to salary rates which might be regarded as standard for 
the line and grade of work covered by the examination. 

Third.— The discontinuance of the practice of establish¬ 
ing unnecessary lists. 

Fourth.— The adoption of a new form of eligible list, 
preferably a larger sheet in a loose leaf binder. 

METHODS OF ADVERTISING EXAMINATIONS 

PUBLICITY AND EXTENT OF ADVERTISING 

The advertisements of examinations are prepared by the 
assistant examiner and reviewed by the Chief Examiner before 
publication. These contain the title of the position for which 
examination is to be held, subjects and relative weights of the 
examinations, experience requirements, occasionally, the duties of 
the position and often the department where the vacancy exists. 
The examiners do not make an exhaustive study of the require¬ 
ments of a particular position preparatory to advertising the 
examination. They prepare the advertisement along the lines 
requested by the department in which the vacancy occurs or, in 
case of clerical positions, in accordance with stereotyped forms 
that are found in the manuals of examinations printed for each 
related group of positions. 

During the last few months, the advertising matter shows an 
attempt to state more clearly the duties of positions with a 
view of excluding undesirable candidates and making competition 
more attractive to those who are properly qualified. 

PUBLICITY GIVEN TO ADVERTISEMENTS 

The advertisements for all examinations to be held on a given 
date are grouped on a single sheet which is sent out for posting 
in public places throughout the State and circulated among the 





Standardization of Public Employments 


27 


various State institutions and other interested parties. Ho 
attempt is made to have positions of importance stand out with 
greater prominence than others. Ho distinction is made in the 
advertising for one position over another. A mailing list of 
various institutions is used but this list is not specialized for 
particular examinations. Hence, an examination for a junior 
clerk receives the same degree of publicity as an examination 
for factory inspector or deputy in the Industrial Commission. 
A specialized mailing list is kept for those who ask for informa¬ 
tion with regard to particular examinations to he held in the 
future. These persons are notified when the examination is 
ordered and a copy of the advertising is sent with one of the 
manuals referred to. 

Except in the case of the higher technical examinations for 
which it is thought necessary that appeal for candidates he made 
through engineering or other technical periodicals, there is no 
paid advertising in newspapers or magazines. Much free pub¬ 
licity is gained by sending brief notices of all examinations to 
the newspapers throughout the State. Much space is given to 
the State examinations by the “ Chief " and the “ Chronicle ” 
in Hew York city, papers devoted to Civil Service. The result of 
the great publicity given by the Civil Service papers in Hew 
York city is that an unduly large percentage of candidates for 
the State service come from that city. 


RESULTS OF ADVERTISING 

The number of candidates for examinations indicates that the 
present method of advertising secures more than an adequate 
amount of competition for the lower positions, hut is insufficient 
in that a majority of candidates come from the larger cities where 
free publicity is easily secured. In examinations for higher 
positions, however, the number of applicants is exceedingly small 
and this may he the greatest weakness in the advertising as at 
present conducted by the Commission. 

CONCLUSIONS AND RECOMMENDATIONS REGARDING ADVERTISING 

METHODS 

An appropriation should lie made for advertising purposes. A 
definite policy should lie outlined by the Chief Examiner to secure 


28 


Report of Senate Committee on Civil Service 


better results than at present. The State Commission might 
begin an improvement by making, for each examination, special¬ 
ized lists, containing the names of persons, organizations, schools, 
business firms, etc., who would be likely to be interested in plac¬ 
ing candidates of the required standard in the way of securing 
positions in the State service. 

It might also send advertising matter to all of the universities 
and educational institutions of the State, business colleges, Y. M. 
C. A.s, etc., etc., particularly and especially, “ up State.” 

METHODS AND STANDARDS OF EXAMINATION 

The lack of a central or systematic control over the establish¬ 
ment of rates of pay and titles and the unstandardized condition 
resulting therefrom have complicated the problem of recruiting 
employees, both for the competitive positions which are filled 
after examinations conducted by the Civil Service Commission, 
and for the exempt positions which are filled by the administrative 
officials, without examination or other restriction. The size and 
importance of the problem devolving upon the examining machin¬ 
ery of the State Civil Service Commission is indicated by the 
fact that the competitive service includes some 11,000 positions. 
One of the many purposes of this investigation was to determine 
as far as possible, the methods and standards of the examining 
division and their relation to the plan recommended by this Com¬ 
mittee. 

This study was limited, in a general way, to the examinations 
for the clerical, engineering and inspectional service under the 
new specifications. 

METHODS OF MAKING THE STUDY 

The methods and standards of the examining division were 
examined as follows: 

First.— Such material as was available with reference to 
the work of the division was collected by the examiners. 

Second.— The advertising, questions and eligible lists for 
the specific examinations were secured and analyzed in an 
effort to obtain a knowledge of the practice of the examin¬ 
ing division with reference to the setting up of the subjects 
and weights of examinations. 




Standardization of Public Employments 


29 


Third.— The papers of individual candidates were secured 
from the files and studied with particular reference to stand¬ 
ards of rating. 

The details and results of this study may be considered under 
two heads: 

1. Organization and General Procedure of the Examining 
Division. 

2. Standards of the Examining Division. 


ORGANIZATION AND GENERAL PROCEDURE OF THE 

EXAMINING DIVISION 

Phis division is in charge of the Chief Examiner who is respon¬ 
sible for planning and satisfactory progress of the examinations, 
development of satisfactory standards, improvement of examining 
methods, preparation of necessary forms for administrative and 
recording purposes, rating of papers and the preparation of lists 
of eligibles properly qualified for appointment. 

Subordinate to the Chief Examiner are six examiners, a clerk- 
examiner, three stenographers, three typewriter copyists and a 
page. A fund of about $10,000 is available for the employment 
of additional and expert examiners, local examiners, assistants 
and other temporary help. This fund is used almost entirely in 
the conduct of written examinations in different cities of the 
State where it is not possible to assign a member of the regular 
force. It has been repeatedly stated in the first report and in 
this report, that the examining division is undermanned. This 
report will show that the work of the New York State Civil 
Service Commission practically begins and ends with a more or 
less correct selection of employees. It certainly is not good 
economy to save money by leaving undone the most important 
functions of Civil Service administration. The examiners devote 
practically the whole of their time to the rating of papers, except¬ 
ing when, because of limited clerical force, all the employees of 
the examining division have to be concentrated on clerical work, 
such as opening and checking applications. The examining 
staff is underpaid, consequently high grade work cannot be 
expected. Therefore, any criticism of methods and standards 
of the Commission must be tempered by a consideration of all 



30 


.Report of Senate Committee on Civil Service 


these facts and the statement that, on the limited appropriation 
available, it is impossible to introduce advanced methods in admin¬ 
istration and high standards of examination. 

EQUIPMENT 

The examining division has not adequate equipment or space 
for the proper conduct of its work. The tiles used for records of 
examinations, examination papers of candidates, etc., are of the 
most obsolete type, of wood, without locks and not properly suited 
to the purpose for which they are used. There are not enough of 
them to contain the materials which it is necessary to file, many 
of the papers being packed in drawers. The space assigned to 
the Civil Service Commission is so limited that the Commissioners 
themselves are obliged to hold their official meetings in the busi¬ 
ness office of the Secretary. This is most unfortunate. 

t/ 

FILING METHODS 

In view of the lack of proper filing equipment, any criticism 
of the method of filing records and other papers cannot properly 
be made. However, the practice adopted for the filing of exami¬ 
nation papers is difficult to justify. They are filed numerically 
according to application numbers, regardless of the position for 
which application is made. Hence, although it is easy to refer 
to the papers of any single candidate by using the reports of the 
examination as an index, it is a difficult matter to assemble the 
papers of a whole examination. A better method would be to fde 
by subject the papers of each examination by filing together in 
numerical order. This makes possible a ready reference to all 
the papers of a given examination and does not make more difficult 
the reference to the papers of any single individual. 

CONDUCT OF EXAMINATIONS 

The more important examinations are conducted in twenty-four 
cities of the State at the same time. Papers are printed or mimeo¬ 
graphed, according to the number of candidates, and sent in sealed 
packages to the several examining centers where they are opened 
by the examiner in charge. The rules for the guidance of these 
local examiners necessarily regulate minutely the details of their 
procedure. The manual of Instructions to Examiners was 
reprinted in 1916, but is identical in every respect with the 
edition of 1909. After the completion of the local examinations 


31 


Standardization of Public Employments 


throughout the State, the examination papers are shipped to the 
office of the Chief Examiner and distributed among the examining 
stall for rating, each examiner usually rating only a single subject 
of the examination. In the large examinations for clerical posi¬ 
tions, the examining force is so inadequate that clerks and stenog¬ 
raphers are pressed into service to rate such subjects as spelling 
and arithmetic. # The rating of one examiner is not checked or 
reviewed by another examiner or by the Chief Examiner, except 
in rare instances. The calculation of the general average of each 
candidate, according to the weights assigned to the examination, is 
made by an examiner and is generally checked by another examiner 
or clerk. The eligible list is then prepared and promulgated by 
the Commission, if it is satisfied with the result of the examination. 


CONCLUSIONS ON GENERAL PROCEDURE OF EXAMINATIONS 

First.— The fact that no change in the examining procedure has 
been made during the past six years, while progress has been made 
by other commissions, indicates the need of a careful study for 
developing and improving the technique of the Commission. Such 
study and reorganization must be made if the State Commission 
is to carry out the standardization program. 

Second.— Papers of candidates are not properly safeguarded 
while being rated and the general average computed. Examiners 
and clerks have free access to them, no facilities are available for 
locking them and no one person is definitely charged with their 
safekeeping. It was impossible to establish a special case of abuse 
in this practice, but the methods in themselves are so loose as to 
merit criticism without reference to results. A separate room 
should be assigned to a custodian of papers, which should be given 
out to other employees only on definite orders signed by the Chief 
Examiner or one of his assistants, and every precaution taken to 
avoid any possibility of abuse. The same modification, however, 
should be made in this criticism as in the criticism of the examin¬ 
ing methods because there is neither the space nor equipment for 
the maintenance of these safeguards at present. 

Third.— The lack of modern mechanical devices for doing rou¬ 
tine computation is worthy of comment. The adoption of a 
decimal scheme of subjects and weights and other readjustment of 
the procedure could be introduced and a rather ordinary grade of 





.‘32 


Report of Senate Committee on Civil Service 


clerk instead of an examiner could be used in doing this com¬ 
puting, all of which should be checked by another clerk. The 
computation of general averages and the preparation of eligible 
lists, however, demands such reliability and probity that complete 
responsibility should be enforced. At present, the practice is 
haphazard and such responsibility is lacking. 

STANDARDS OF EXAMINING DIVISION 

The standards that have been applied by the examining divi¬ 
sion will be considered under the following headings: 

1. Subjects and weights of examinations. 

2. Content of examination papers. 

3. Use of experience as a subject of examination. 

f. Conclusion. 

SUBJECTS AND WEIGHTS OF EXAMINATIONS 

The analysis of subjects and the relative weights assigned to 
various examinations shows that the practice has not been uniform 
in examinations of the same type and grade. On the other hand in 
examinations of different type, the weights and subjects are at 
times very similar. One or two comparisons in this report will 
suffice: 

Hollerith Tabulating Machine Operator. 


Experience. 6 

Arithmetic. 1 

Spelling. 1 

Letterwriting. 2 


In the examination for calculating machine operator, a 
position very similar in character, experience was given a 
weight of 3, the duties a weight of 3, minor subjects being 
the same. 

In contrast with this, the subject and weights of the examina¬ 
tion for filing clerk and indexer, held November 5, 1914, are as 


follows: 

Experience. 2 

Duties. 4 

Arithmetic.. . . . 1 

Spelling.•. 2 

Copying from plain copy. 1 











Standardizations of Public Employments 


These two examinations are for positions directly related 
in character and rating. 

An apparent absence of standards was noted in the inspect ion al 
positions studied. For example, the examination for factory 
inspector had the following subjects and weights: 


Experience and training. 5 

Questions on factory law. 5 

Duties. 2 


On the other hand, the examination for mine and tunnel 
inspector gives a weight of but 2 for experience, a weight of 
5 for duties and for questions on labor law, 2. The subject 
of arithmetic is added with a weight of 1. 

Although the limited number of examinations studied makes 
further evidence on this subject desirable, it may be said that 
there is lack of standardization in subjects and weights of examina¬ 
tions. This conclusion is confirmed by the fact that apparently no 
effort is made to use a standard scheme for indicating weights and 
subjects. Although the comparative tables used for purposes of 
analysis have been prepared on a scale of 10, it is found that the 
Commission has used eight separate scales totalling respectively, 
1, 2, 3, 5, 10, 18, 20 and 40. This indicates a serious diffi¬ 
culty in the technique of examining, as it complicates the com¬ 
putation of general averages. However, it is not so much 
the determination of subjects and weights as the standards 
indicated bv the use of the particular subjects that are of 
especial interest. It is noted in the examinations for the clerk 
group and those of the inspectional positions that undue weight 
is given to the subjects of arithmetic and spelling, penmanship, 
letterwriting and copying from plain copy and rough draft. This 
indicates that the examination practice as first adopted has not 
been very materially improved. The complaint that examinations 
are academic seems to be well founded. It is noted also that 
undue weight is often given a single subject in an examina¬ 
tion. Because such subjects as arithmetic, spelling, penmanship, 
etc., are marked within very narrow limits or are so easy that 
practically every candidate receives a high percentage, it appears 
that real competition in many of the examinations is frequently 

2 





34 


Report of Senate Committee on Civil Service 


confined to a single subject and that the minor subjects of the 
examination are in large part merely qualifying noncompetitive 
tests. The remedy for the weakness of the present practice, which 
is quite perfunctory, is to raise the standards of examinations and 
at the same time include assigned topics which more accurately 
test ability and adaptability. Such a procedure would then permit 
of a more adequate and less perfunctory system of assigning 
weights to the several factors and subjects. The use of the sub¬ 
jects of arithmetic, spelling, etc., may be due to the fact that the 
rating of such papers is more easily accomplished than because of 
any theory as to the proper value of such subjects in civil service 
examinations. 


CONTENT OF EXAMINATION PAPERS 

One of the most important characteristics of examination papers 
prepared by the State Commission is the preponderance of the 
use of fact questions in examinations. This is seen particularly 
in those examinations in which the candidate is required to have 
a knowledge of certain state laws, as, for instance, the labor law. 
The questions in such cases practically call for a statement of 
different provisions of the law. They establish the fact that the 
candidate has, or has not, a good memory, or may, or may not have 
had opportunity for studying the law, but are otherwise valueless 
in the determination of the relative ability of competitors. 

In studying the papers set up for clerical examinations, it was 
noted that a large number of question papers which had been used 
in former examinations were used in the examinations of 1914 
and 1915. Furthermore, the same papers were used in different 
examinations given on the same day. From this, it appears that 
the standards of examinations have not been improved since 1910, 
and that no attempt has been made to improve them, at least in 
the clerical service. 

A review, similar to that made of the examinations for the 
clerical service, was made of the examinations held for engineer¬ 
ing and other technical positions. The period covered was the 
same. Among the earlier examinations the same questions were 
used in several examinations, but, as a rule, the content of examina¬ 
tions for the same positions was varied and with few exceptions 
was of a standard in keeping with the requirements of the position 


Standardization of Public Employments 


for which it was held. The only criticism of the standards of 
these examinations is for those in the lower grades of the engineer¬ 
ing service, i. e., axman, rodman and chainman. These were of 
such a nature that none but technically educated men could hope 
for success in them. These examinations were much more difficult 
than the examinations for highway inspector and inspector of con¬ 
struction, who receive larger salaries. In the higher engineer¬ 
ing groups, the examinations were of the correct standard and were 
designed to meet the qualifications for assignment to particular 
branches of engineering work. The Committee is particularly 
interested in setting up standards of examination from the view¬ 
point of the service required and the value of such service to the 
State. The effect on standards of examinations of such external 
influences as the number of applications, the number of eligibles 
required for certification, the locality of the examinations, etc., 
demand a more elaborate study than has been made. 

USE OF TRAINING AND EXPERIENCE AS A SUBJECT OF 

EXAMINATION 

At no point are the standards of the examining division in such 
intimate contact with the program of this Committee as in the use 
of experience as a factor in examinations. One of the problems of 
this Committee is to set up definite qualifications for entrance 
into, and for promotion within, the service and, for all except the 
lower grade positions, a part of their qualifications consists in 
requiring certain minimum outside experience before entrance 
into the public service. Where the character and amount of 
experience are left to the discretion of the Commission, it is inter¬ 
esting to know how this discretion has been exercised in the past. 
Where specified requirements are set up by the proposed standard 
specifications, it is desirable to know how they compare with those 
set up by the Commission in former examinations. An analysis 
of the subjects and weights of the examinations studied shows 
that the factor of training and experience was used in all but two 
open competitive examinations in the clerical group and in all 
the open competitive examinations for the selected positions 
studied outside the clerical group. But this factor has widely 
different weights ranging from 1.5 to 10 on a scale of 10 for 
the examinations studied. There appears to lie no standard 


36 


Report of Senate Committee on Civil Service 


governing the weight given to this subject unless the fact that, 
because a certain weight lias already been used in a previous 
examination for the same position, a standard is thereby created. 
Despite the absence of standard, the fact that training and 
experience are used so constantly as a factor should make easy 
the work of the Committee with regard to the setting up of 
proper standards. In the last examination for junior clerk, the 
State Commission took the advanced step of setting up minimum 
educational qualifications — three years of high school education, 
or the equivalent, to be evidenced by a certificate from the Board 
of Regents of the State of blew York. This marks a distinct 
advance. However, there are two drawbacks to this apparent 
progress in the policy of the Civil Service Commission: 

First.— There is no investigation of the truth of the statements 
made by candidates upon which the experience rating is based. 
This is due, as most of the other shortcomings are, to the lack of 
adequate appropriation to employ the necessary investigators. In 
any scheme of standardization, it is necessary that experience play 
an equally important part in civil service examinations. This 
being true, the only way to secure true competition is to verify 
the statements of the candidates by an impartial investigation. 
Owing to the fact that the importance of one’s own work is seldom 
stated modestly and that it is impossible for examiners to make 
due allowance for any natural exaggeration, it is essential that an 
independent investigation be made. 

Second.—* The other defect in the use of experience papers is 
found in the theory regarding their value as a factor of an 
examination. The term “ experience ” is frequently interchange¬ 
able with the term “ age.” The instructions on rating experience 
state: 

“ In marking experience the following topics will be con¬ 
sidered: Age—The examiner will determine standard lim¬ 
its of age most desirable for the position. The candidates 
within those limits will receive the maximum allowance for 
age and other candidates will be rated according to their 
variation from the standard adopted.” 

Litigation is now pending in the Court of Appeals against the 
Commission because it set a maximum age limit in a county 






Standardization of Public Employments 


37 


examination for the purpose of automatically excluding civil war 
veterans, and it will be found in other examinations that they 
have been trying to make too much of seniority in the rating of 
examination papers. For a complete verification of this conclusion 
further study is necessary. In this connection, the question arises 
whether experience papers should in every case he made a basis 
for competition between candidates, or whether in the lower posi¬ 
tions. particularly, the requirements of a standardization program 
are not satisfied when the experience satisfies the minimum quali¬ 
fications required by the specifications. Does not the comparative 
rating of experience in the lower grade examinations which 
should be filled by a young man, in the best interests of both the 
candidate and the State, make it more probable that older men 
because of longer experience, will be preferred ? 

Another deviation from the proper use of experience papers is 
their use as a factor in an examination where definite minimum 
requirements are not set up at all, at least are not mentioned to 
candidates in advance. As all training and experience papers 
must receive a mark of 60 per cent, to permit the candidate to 
continue in the examination, some standards must be in the exam¬ 
iner's mind as to what lack of experience will give a man less 
than 60 per cent, and thus eliminate him. But these cannot be 
real, straightforward standards or they would be stated in advance. 
If, on the other hand, every candidate is to be given 60 per cent, to 
start with, then we have a comparison limited to 40 per cent, on 
a scale of 100. Is experience properly a subject of examination 
when a candidate is not required to have a minimum experience to 
qualify him in performing the duties of his position? 

A third use of experience papers which is not commended is 
found in the endeavor to make it serve the purpose that in many 
other commissions is served by a practical examination. The 
marking of examinations on the uninvestigated statements of 
applicants is not a proper substitute for practical tests. 

A fourth use of experience papers worthy of adverse comment 
is the too frequent employment of this factor as the sole factor of 
an examaination. This is found in three cases: 

1. For high grade positions in place of the better known 
“ non-assembled ” examination. 

3 


38 


Report of Senate Committee on Civil Service 


2. In examinations where the number of candidates is 
too few to make it practicable to set up a written examina¬ 
tion. 

3. For lower grade positions which require some technical 
ability, for which positions it is difficult to hold examina¬ 
tions. 

The use of experience as a factor in State examinations follows 
the line of least resistance and is not the result of a carefully 
developed policy for various types of examination. 

RATING OF TRAINING AND EXPERIENCE PAPERS 

In the rating of experience as in other subjects, there is no 
check of ratings of an examiner, and very often the rating of 
these papers is done upon the application sheet of candidates. 
This does not, in itself, indicate that there ever has been any 
fraud or injustice done, but when the name of the individual, 
whose paper is being rated, appears, the personal element is, or 
may be, present, which is contrary to good civil service practice. 
The statement of experience of the applicant upon his applica¬ 
tion form is a very desirable feature in any case. For instance, 
training and experience may be made a qualifying factor, in 
which event these papers should he rated before the examina¬ 
tion is held. If this statement is made upon a detachable sheet, 
given a proper identification number and graded after it is 
detached from the body of the application, a great economy in 
time and labor might he gained for the Commission. 

ORAL EXAMINATIONS 

The oral examinations of the State Commission are not stand¬ 
ardized and very frequently are not even rated, being merely 
qualifying. When marks are given, they are apparently based 
upon impressions. It is in the technique of the oral examina¬ 
tions that the Committee feels great progress ought to be made, 
for it is only in the oral examinations that the way in which a 
candidate might act under given conditions may be observed. 
His mental action and personality, his alertness, his presence,, 
address and many other important and intangible qualifications 
may thus be given due consideration. 

tJ O 


Standardization of Public Employments 


39 


LACK OF CHECKS IN RATING PAPERS 

The investigation reveals the fact that most, if not all, of the 
work of rating is done in one process; i. e., the rating made 
by one examiner is not checked by another. This is due to the 
fact that there is not sufficient force to do it. There must be 
(it least one check on all original ratings, before the system is 
free from obvious criticism. This criticism must not be con¬ 


strued to mean that the integrity of any examiner is questioned. 
It i« merely to call attention to and emphasize the necessity of 
reducing the probability of error to the lowest possible terms, 
and this is possible only by an increased examining force. 


PROMOTIONAL SYSTEM ' 

PROVISION OF LAW 

The law provides that “ vacancies in positions in the competi¬ 
tive class shall be filled, so far as practicable, by promotion from 
among persons holding positions in the lower grades of the depart¬ 
ment, office or institution in which the vacancy exists. Pro- 
motions shall be based upon merit and competition and upon the 
superior qualifications of the person promoted as shown by his 
previous service, due weight being given to seniority." 

MEANING OF PROVISION 

This provision must be construed as emphasizing the three 
following requirements of the promotional system: 

First.—That vacancies shall be filled as far as practicable 
by selections from incumbents of positions in lower grades. 

Second.—That promotion involves advancement from one 
grade to a higher grade with a corresponding change in duties. 

Third.—That such promotion shall be based upon merit and 
competition. 

Civil service practice in the past has conformed to the first 
requirement. It has, however, ignored the second and third 
provisions, the one being to protect the state from arbitrary and 
wasteful advancements, the other to protect the employee and 
to secure to him adequate opportunity for advancement based 
upon merit. 

The failure of the Civil Service Commission to fulfill all of 
those requirements of law has not been due to reactionary policy 



40 Report of Senate Committee ojst Civil Service 

or indifference. The present Commission has recorded its 
approval of the proposals of this Committee and has cooperated 
with it freely. It has also requested that this Committee state 
in detail the best methods of putting its recommendations into 
effect. Here, again, the Commission has been hampered with its 
present lack of facilities. The term “ promotion v as applied to 
the civil service of Hew York State refers primarily to an 
increase in salary. The Civil Service Law, section 16, provides 
that “ an increase in salary or other compensation of any person 
holding an office or position within the scope of the rules in force 
hereunder, beyond the limitation fixed for the grade in which such 
office or position is classified, shall be deemed a promotion.'' 
Under the powers granted by this section, a great many positions 
in the competitive class are graded, not according to duties but 
according to compensation. With some exceptions, a uniform 
grading is applied to positions in the so-called “ graded ” service. 
This begins with positions up to $300 per annum and runs 
through twelve grades, the last grade being for positions over 
$3,000 per annum. This grading refers, in no manner, to the 
relative value of positions. It is adopted for the purpose of 
maintaining a check on indiscriminate increases in salaries. In 
its application, however, this purpose has been lost sight of and 
it may be said that the arbitrary classification of positions accord¬ 
ing to salary rates has fostered irregularity of compensation. 
An examination held for a change in salary when, there is no 
corresponding change in duties, may not properly be called a 
promotional examination. But this is the interpretation of the 
term “ promotion " as used by the State Commission. 

INTERPRETATION OF THE TERM “ PROMOTION ” AS USED BY THIS 

COMMITTEE 

The term ik promotion " is used to indicate the assumption of 
more important duties and responsibilities. Such a promotion 
generally carries with it an increase in salary, and properly so. 
Such an increase in salary is granted as the result of a promotion 
and in itself does not constitute the promotion. The interpre¬ 
tation of the term “ promotion ” upon winch the new schedules 
are based, is important and the Committee recommends that this 
interpretation be substituted for the present arbitrary and narrow 


Standardization of Public Employments 


41 


construction of the term. The Committee, on the other hand, 
realizes the need for increase in salaries without change of duties 
in order that employees may he rewarded to the extent that their 
efficiency increases while performing the same duties. This will 
be brought about by the establishment of ranges of compensation 
for each grade of work as outlined in the first report. Each 
grade includes appropriate standard rates; advance from one 
to another to take place, however, without examination after a 
minimum period of satisfactory service. The distinction between 
a salary increase within a grade, which this Committee terms 
advancement, and promotion from grade to grade with change 
of duties is, that one is administered without examination and 
is not dependent upon the creation of vacancies or new positions, 
while the other requires examination, appointment being made 
only as opportunity is created through a vacancy or a new posi¬ 
tion. The present practice is so completely at variance with the 
proposed and correct practice that fundamental changes would 
be necessary to bring about the latter. 

An opinion of the Attorney-General (State Department 
Reports, Yol. v, pp. 495, 496, dated September 29, 1915) re 
promotions, sustains this interpretation, quoting Hale v. Worsted, 
185 H. Y. 247. “ The constitution provides for promotions as 

well as appointments on the basis of competitive examinations, 
but the promotions there contemplated are advancements to higher 
positions and “As the Appellate Division said in People ex 
rel. Lodholz v. Knox, 58 A. D. 541, 545, (appeal dismissed 167 
H. Y. 620) ‘ clearly it is the position and not the salary which 
fixes the grade from which a promotion is to be made, which 
shows that what the Legislature evidently had in view was that 
the grading should be determined not by the pay received but 
by the duties performed.’ ” 

IRREGULARITY AND RAPIDITY OF SALARY INCREASES AND 

PROMOTIONS 

In the first report on page xcviii is a table showing the average 
length of service in months and average salary increases for each 
year of service of clerks in the Departments of the Comptroller, 
Insurance, Health, Secretary of State, Labor and Education. 
This table sho'ws the extent to which the arbitrary and rigid 


42 


Report of Senate Committee on Civil Service 


system of advancements and promotions has resulted in dis¬ 
crimination against departments in which the opportunity for 
advancement is restricted. It also shows that an abnormally 
high rate of salary increases has developed in certain departments, 
a factor which, in large part, explains the accumulation of over¬ 
payment. The regulation of rates of compensation is not con¬ 
ferred upon the State Civil Service Commission, hence, it cannot 
he charged with responsibility for the present irregularity. The 
practice of the Commission, however, in administering salary 
increases is in large part responsible for its failure to check the 
indiscriminate i ncreases. 

PROMOTION WITHOUT COMPETITIVE EXAMINATION 

A great many promotions are made without competitive 
examination, in violation of the provision of law. The exact 
extent of this violation cannot be estimated, and time for exhaus¬ 
tive studies of the records has not been available. That the per¬ 
centage is large is shown by the following facts: 

First.— Of twenty-four promotional examinations for positions 
in the clerical group in 1944 and 1915, only five were held for 
positions outside of the Education Department and the Public 
Service Commission of the first district. 

Second.—According to the last available statistics (1913) 
seventy-one competitive promotional examinations were held, 
6S6 candidates passing. During the same year 1,218 employees 
were promoted. It must he considered, in connection with this 
statement, that the majority of employees on eligible lists are 
not promoted during the life of the list — one year — hence the 
percentage of appointments without examination must be greater 
than these figures show. The causes for the failure to make pro¬ 
motions as the result of competitive examinations are: 

1. The limitation of eligibility for promotion to bureaus 
or other administrative units within departments. This 
fact reduces the number of persons eligible and whenever 
this number is three or less, no competitive examinations are 
held, as the department head has the right to appoint any 
one of three certified candidates, regardless of standing, and 
when only three candidates are eligible, it is a waste of time 
to determine their relative standing. The Secretary of the 





43 


S T A A DA E DIZ AT 1()X O F 


Public 


Employments 


Commission states that it is the policy of the present Com¬ 
mission to limit competition for promotional examinations 
on geographical rather than bureau lines and, so far as possi¬ 
ble, to open the competition to all eligible employees in a 
department. This being done, the opportunity for advance¬ 
ment based on merit ought to be greater. The next step 
would he to throw open the examinations to several depart¬ 
ments for positions which do not require a specialized 
knowledge of departmental duties. 

2. An apparent limitation of competition among those 
eligible. In the promotion examination to Chief Clerk, 
Comptroller’s Office, Mortgage Tax and Municipal Accounts 
Bureau, eighteen employees were eligible but only one appli¬ 
cation was received. For promotion to junior proofreader, 
grade 3, Public Service Commission, first district, nine¬ 
teen were eligible, one application was received. These 
cases are typical. The selection of these was*at random 
and does not imply that the Committee found anything to 

criticise in these instances. The iSecretarv of the Civil 

«/ 

Service Commission, however, admits that cases of intimi¬ 
dation by department heads in order to secure the promotion 
of favored employees, have been brought to his attention. 
It is difficult to see how this is to be prevented, as the appoint¬ 
ing officers, with his choice of three, is sure to pass over any 
employee who acts contrary to his wishes. The practice in 
many states and municipalities is to appoint only the highest 
name certified from a promotional eligible list. This pro¬ 
vision in the Few York 'State Law would doubtless correct 
this abuse. 

3. Apparent efforts on the part of department heads have 
been made in the past to “ heat ” the civil service law. In 
many instances there has not been proper co-operation 
between the Civil Service Commission and the department 
heads. This condition the present Commission is zealously 
endeavoring to overcome. Until the Civil Service Commis¬ 
sion has a more intimate knowledge of departmental con¬ 
ditions, this and other obstacles to proper administrative con¬ 
trol will make their influence felt, as in the conditions 
enumerated above. 


4 A Report of Senate Committee on Civil Service 

THE PROPOSED PRACTICE IN PROMOTIONAL EXAMINATIONS 

The practice proposed by this Committee contemplates the 
restoration of competition in making promotions throughout the 

service. It would accomplish this: 

First.— By widening the area from which promotions shall be 
made, to include all officers or bureaus, thus bringing in greater 
competition. 

(Second.— By eliminating all features of arbitrary limitation 
from competition. 

SUBJECTS AND WEIGHTS IN PROMOTIONAL EXAMINATIONS. 

There is the same lack of standards in the establishment of sub¬ 
jects and weights in promotional examinations as in open competi¬ 
tive examinations, although, in the former, the variations are 
usually found between departments rather than between positions 
in the same department. In nearly all promotional examinations 
the standard of seniority is used with a weight on a scale of 10, 
generally between 1.5 and 3.33. Seniority is rated in accordance 
with a scale on which a service of six months is given a rating 
of 60%. From six months to fourteen months, each additional 
month is given an increment of 2.5%. From fourteen months 
to eighteen months, each additional month is given an increment 
of 1.5. From eighteen months to three years each additional 
month is given an increment of .5 and from three years to four 
years, each month is given an increment of % of 1%. A study 
of this scale shows discrepancies, apparently because it is deemed 
necessary to reach 100 for seniority at the end of four years of 
service. This factor is probably the one which has been most 
abused in connection with promotional procedure. Beyond cer¬ 
tain limits varying with the kind of work, additional service must 
be considered as an evidence of stagnation rather than a virtue 
upon which promotion should be based. 

When the weight of 3.33 is given to seniority and, in addition, 
experience and training are considered factors in which weight 
is given to the experience gained in the position from which pro¬ 
motion is made, injustice is sure to be done. It is believed that, 
as a factor in determining fitness for promotion, seniority should 
be given a weight not to exceed .1 on the entire examination, or 
better still, eliminated entirely. 



Standardization of Public Employments 


45 


TRAINING AND EXPERIENCE 

The use of this factor in promotional examinations is unusual 
as an employee who has received an original appointment should 
not have his chances for promotion affected by a factor over which 
he has no control, no matter how well he performs his duties in 
the lower grade. However, this factor is frequently used in 
examinations held by the State Civil Service Commission. In 
some cases, it is synonymous with seniority; in other cases, for 
instance, in the Education Department, it is used in addition to 
the factor of seniority; and in rating it, the education and experi¬ 
ence of a candidate previous to his appointment to the public 
service are taken into consideration. 

EFFICIENCY 

Efficiency is used as a factor in practically all promotional 
examinations, although no system of properly controlled records 
of individual efficiency is prepared except in isolated instances. 
In the Public Service Commission of the first district, records are 
used for promotional purposes over which no supervision is 
exercised by the Civil Service Commission. The uncontrolled 
use of this factor in promotional examinations practically per¬ 
mits the department head to determine the result of such examina¬ 
tions. The Commission accepts this statement of efficiency of the 
competitors unless the attempt to rate unjustly is so open that it 
cannot be overlooked. In the clerical examinations for the 
Public Service Commission of the first district, it is the only 
factor in promotional examinations, excepting in every other 
grade. This actually puts the question of promotion in the hands 
of the department, the eligible list being set up strictly in accord¬ 
ance with the records of the Public Service Commission as to 
the efficiency of its employees. If any system is to he built up 
in which promotions are to he based on merit and fitness and 
weight is to he given to efficient service in the grade from which 
promotion is made, it is necessary to have a uniform system of 
efficiency records supervised and controlled by the Commission. 

DUTIES 

The use of a duty paper is infrequent among the examinations 
studied. Questions relating to the duties of .the position to which 
the promotion is made should be designed to test the ability of 


46 


Report of Senate Committee on 


Civil Service 


the candidate to fill the higher position. If the promotion does 
not involve a change of duties, there is no occasion for showing 
ability to perform work of the higher grade. This is possibly 
one reason for the failure to use the duty paper more frequently. 

Another reason, and the most important, is the lack of 
knowledge that exists regarding the departmental procedure and 
duties of employees. It is due to this lack of knowledge more than 
to any other reason that the Civil Service Commission fails in 
its attempt to establish and maintain an effective promotional 
system. To become a more effective administering body, the 
examiners or investigators of the Commission must be accurately 
informed with respect to departmental procedure and employ¬ 
ment conditions. It is the purpose of this Cmnmittee to turn 
over sets of personal service and work record cards, organization 
charts, departmental reports and other material on organization 
which it has assembled and compiled for the use of the Civil 
Service Commission. All of these should be currently checked 

e/ 

and revised by the examiners and investigators of the Commission 
in order to maintain the proper control. 

This Committee repeats the recommendation in its first report 
that a Division of Standards and Service Records be established 
by the Commission to carry on and complete the work inaugurated 
by this Committee. 

t/ 

PROCEDURE IN PROMOTIONAL EXAMINATIONS 

Promotional examinations are held on the request of the depart¬ 
ment heads. The Civil Service Commission decides upon the 
eligibility of employees and, from its roster, prepares a list of these 
eligibles which is forwarded to the department for posting. A 
notice and an application blank are sent to each individual eligible. 
This is all that is done by the Commission in safeguarding the 
rights of employees who are eligible for promotion. This pro¬ 
tection is not sufficient. The practice of preventing employees 
from taking promotional examinations, while difficult to trace, 
is shown in the need for such an order as the following: 

“ It is impracticable to hold promotional examinations 
for the same positions and grade in any department oftener 
than once in six months, and then only in cases where there 
is no appropriate eligible list of three or more names.” 


Standardization of Public Employments 


47 


Ihe previous practice was to have it arranged in the depart¬ 
ment that less than three should apply for promotion in order 
that one specific candidate he appointed. Shortly afterwards, 
the Civil Service Commission would he asked to hold another 
examination of the same kind. 

LENGTH OF SERVICE 

Under the present practice employees must have served six 
months in the grade from which promotion is sought. This 
Committee believes that the length of service required in the 
lower grades should he varied with the character of the position 
and not be uniform for all positions in the sendee. These require¬ 
ments will he noted in the specifications published in the first 
report. 

PREPARATION OF SERVICE OR EFFICIENCY RECORDS 

The preparation of a system of service records covering the 
employment of each person in the service and the elements mak¬ 
ing for efficiency should he worked out by the Division of 
Standards and Service Records, the organization of which is 
recommended in the first report. These records must he pre¬ 
pared so accurately that they will show a complete history of 
each employee and form the basis for the rating on efficiency in 
all promotional examinations. The preparation of these original 
records must he in the hands of the departments subject to 
review and verification by the Bureau of Standards and Service 
Records of the Civil Service Commission. With such a system 
of records the weight given to efficiency as a factor in promotion 
should he increased. This will place a premium on efficiency 
with the result that the service in all departments will improve 
and a genuine esprit de corps will he created. 


COMMENT RE OFFICE RECORDS AND FORMS 

The study of this Committee shows that a revision of the 
existing forms of the office of the Civil Service Commission is 
neeessarv in order to meet the demands of the service more ade- 
quately. The existing forms and records in a great number of 
cases are obsolete, the procedure is involved and encumbered 


48 Report of Senate Committee on Civil Service 

with indirect methods and useless action. Certain additional 
forms should be introduced to faciliate action of the Commission 
and simplify its relation with departmental organization. The 
most noteworthy instance of the obsolete forms is the eligible 
register. The eligible lists are now recorded in longhand in large 
record hooks. All eligible lists are recorded in the register as pro¬ 
mulgated regardless of classification of any sort. As each candi¬ 
date is entitled to three certifications to each departmental head 
for positions to which he is eligible, the record is often confused 
where certifications to a number of departments are necessary, and 
in any particular case a disproportionate amount of study is 
required to ascertain the real facts. It is suggested that an entirely 
new form be derived and used in loose leaf binders, arranged 
according to clerical, technical, engineering, skilled labor and 
other services in separate volumes for convenience in reference. 
Other like suggestions could be made which would result in the 
simplification of this procedure. 

REPORTS TO THE LEGISLATURE 

Section 6, paragraph 5 of the Civil Service Law prescribes- 
as one of the duties of the Commission: “ Make an annual report 
to the Governor for transmission to the Legislature, showing its 
own action, the rules and regulations and the exceptions thereto 
in force, and the practical effects thereof and any suggestions it 
may approve for the more effectual accomplishment of the pur¬ 
poses of this chajiter.” 

Up to 1909, the report was confined to one volume, a large part 
of which was the civil list. Beginning with 1909, the reports 
have appeared in two volumes, the first containing a general 
statement of the activities during the year supplemented bv 
tabular statements of examinations held; the classification bv 
departments; appointments in the various classes; provisional 
appointments; employment without examinations; promotions, 
resignations, etc.; amendments to the rules, classification and 
regulations; extracts from the minutes of the Commission; the 
rules of municipal civil service commissions approved during the 


Standardization - of Public Employments 


49 


year, together with exceptions to the rules whereever made; a 
summarization of the reports of the municipal commissions and, 
also, a recapitulation in the form of a tabulation of the work of 
the municipal commissions; a digest of the court decisions, the 
opinions of the Attorney-General; the Civil Service Law, rules 
and regulations. 

The second volume originally contained nothing but the civil 
list but, of late years, it has contained a general descriptive report 
of the activities of the Commission. The civil lists are very 
valuable in that they furnish a practically complete list of all 
of the servants of the State, arranged by departments. It has 
been of great value to this Committee in its work. For the pur¬ 
pose, presumably, of economizing space a complete tabulation of 
the employees of the hospitals has been omitted. In conducting 
one or two investigations, it has been necessary for this Committee 
to depend entirely upon the civil list for its information and it has 
been found that the recapitulation showing the distribution of the 
classification appearing in the front of the book does not check 
accurately with the enrollments of the departments as shown in 
detail in the body of the volume. Here, again, a criticism of 
inaccuracies of this sort must be tempered by the knowledge of 
the actual working conditions in the office of the Commission and 
the impossibility of having an adequate check upon the work of 
this sort there. 

A general criticism of the report of the Civil Service Commis¬ 
sion is that it is too much like the usual “ official ” report, in that 
it contains a great mass of material which serves no purpose, is 
not of general interest and could be easily dispensed with. As 
there is nothing in the report which is not now made mandatory 
by the law, the Committee recommends a revision of section 6 of 
paragraph 5, so as to contain only matters which are of vital 
importance and which will serve as a check on the proper admin¬ 
istration of the law. In the report for 1915, the present Com¬ 
mission has shown a keen appreciation of its handicaps in admin¬ 
istration and of the labor lost in doing work the results of which 
are never used, and makes suggestions for the improvements of 


50 


Repoet of Senate Committee on Civil Service 


its service, all of which are covered at length in this and the 
first report of this Committee to the Legislature. 

The fact that the second volume of the report of 1915 has not 
yet (November 17, 1916) been distributed is one more indication 
of the necessity for granting an additional appropriation, that, 
at least, the functions made mandatory by law may he promptly 
and accurately performed. 

CLASSIFICATION OF THE JUDICIAL AND COUNTY 

SERVICE 

The Committee planned originally to carry the standardization 
studies through the judicial and county service of the State 
during the current year, and, to this end, send out cards to all the 
counties and courts in February. Owing to the enforced reduc¬ 
tion of its staff, however, onlv a most cursory study has been 
possible. The cards have been received from some of the counties 
and some of the courts, but others, after repeated requests, have 
failed to fill them in and return to this Committee. The work, 
therefore, has been largely confined to office studies of such of 
the counties as have been classified, eighteen in number, and such 
data as are published by the 'State Civil Service Commission. 

It is far from the purpose of this Committee to suggest that 
politics as a factor in government, lie eliminated. After this 
cursory study of the organization of the counties, there are, how¬ 
ever, some defects and injustices which are so patent that this 
Committee would feel remiss in not making mention of them in 
this report. 

COUNTY ORGANIZATION 

In the first place, the organization of the county, as a political 
subdivision, is unique. Excepting in isolated instances, county 
government is independent of State control. Wherever there is 
supervision by a State department it is likely to be superficial. 
The Board of Supervisors, which is essentially the controlling 
agency in the administration of county affairs, has jurisdiction 
over matters of purely local interest, in which the application of 
purely business principles should suffice for the complete and 


51 


Standardization of Public Employments 

satisfactory solution of all detail. It would seem that this would 
induce extensive application of the merit system, but for some 
reason, the county unit has been overlooked to a considerable 
extent in civil service administration. To be sure, the State has 
classified the service of eighteen counties embracing the pre¬ 
ponderance of the population of the State, and contemplates the 
classification of others ; but the entire absence of anv standards 
whatever is more apparent in the county service than in either 
the State or municipal service. A careful analysis of the tabu¬ 
lation made a part of this report, which shows wide variations in 
salaries for identically the same sort of service in various locali¬ 
ties, indicates the necessity for a program of standardization in 
the service of the counties which have already been classified. If 
such irregularities are found in these counties, there is no reason 
to suppose that conditions are different in the counties whose 
service has not been classified and the Committee recommends 
that an adequate appropriation be made to the Civil Service 
Commission for carrying this work throughout the counties of 
the State. This recommendation is based on the thought that the 
work of this Committee in connection with standardization will 
probably be discontinued with this session of the legislature and 
whatever work is accomplished in the future will be done through 
the staff of the Civil Service Commission itself. 

MULTIPLICITY OF TITLES; INEQUALITIES OF COMPENSATION 

A list of the titles employed in the services enumerated above, 
has been prepared, and classified as nearly as may be without the 
work cards, into the Groups established in the First Report to the 
Legislature. With them are given the number of the positions 
under each and all of the salary rates attached thereto. (Table I) 

CLERICAL SERVICE 

As the Clerical Service represents the great mass of employees . 

_both of the Courts and Counties — the discussion of the 

inequalities in this service will suffice to cover, generally, the 
entire situation. In the county positions enumerated, are 
included the positions of clerical nature in the county courts, the 
lists prepared for the State Courts containing only the positions 

therein. 


52 


Report of Senate Committee on Civil Service 


In order to enumerate specifically some of the inequalities, it 
is desirable to bring attention to the following titles, and the 
wide range of salaries: 

Bookkeeper, $660 per annum to $2,000 per annum, ten rates. 

Cashier, $1,080 per annum to $3,000 per annum, ten rates. 

Clerk, $300 per annum to $4,000 per annum, thirty-nine rates. 

Assistant clerk, $540 per annum to $3,000 per annum, seven rates. 

Chief clerk, $1,500 per annum to $10,000 per annum, eleven rates. 

Comparing clerk, $720 per annum to $2,000 per annum, five rates. 

Clerk of court, $1,200 per annum to $9,000 per annum, twenty rates. 

Deputy clerk of court, $800 per annum to $5,000 per annum, five rates. 

General clerk, $520 per annum to $2,400 per annum, fourteen rates. 

Index clerk, $7S0 per annum to $2,300 per annum, thirteen rates. 

Probate clerk, $1,500 per annum to $5,000 per annum, four rates. 

Record clerk, $950 per annum to $3,000 per annum, six rates. 

Transfer tax clerk, $720 per annum to $2,400 per annum, seven rates. 

Interpreter, $800 per annum to $3,000 per annum, ten rates. 

Messenger, $300 per annum to $1,800 per annum, fourteen rates. 

Stenographer, $300 per annum to $2,750 per annum, twenty-one rates. 

Iii the Clerical Service in the counties, there are 261 different 
titles. Owing to the fact that much of the service is not covered 
at all in the First Report, there is need for a large number of 
new titles with specifications drawn to cover them, but that it 
is necessary to have 261 of them is entirely out of the question. 

It is to he expected that salaries in the counties embraced 
within the greater city will be higher. Without studying the 
work cards, it will he manifestly impossible to say that the work 
done by any individual under any title is not worth the salary 
paid therefor, hut under any definitions of work it is impossible 
to reconcile the title of “ Chief Clerk ” with a salary of $10,000. 
“ Clerk of Court ” with a salary of $9,000, “Assistant Clerk ” 
with a salary of $3,000, or “ Deputy Clerk of Court ” with a 
salary of $5,000. 

It is noteworthy also that all of the positions thus enumerated 
are in the “ Exempt Class.” 

IRREGULARITIES IN SALARIES OF ELECTIVE OFFICERS 

The incongruities of salary are by no means confined to the 
Classified Sendee. As a general business proposition it is 
interesting to observe the facts as presented. 


Standardization of Public Employments 


58 


A few cases will be cited: 

Commissioner of Jurors . ..$1,500 to $6,000 per annum 

County Clerk . 2,000 to 15,000 per annum 

Department County Clerk.. 1,200 to 6,000 per annum 

District Attorney. 1,200 to 15,000 per annum 

Treasurer. 1,500 to 10,000 per annum 

Sheriff. 2,000 to 15,000 per annum 

A more specific study of the salaries of county clerks and 

sheriffs (Table II) reveals the fact that population has little, if 
any, bearing on the salary paid as in the case of the former, the 
County Clerk of Erie County with a population of 572.000, is 
$5,000 per annum, while the County Clerks of Oneida County 
with 167,000, and Westchester with 322,000, receive $10,000, 
and the County Clerk of Queens with a population of 397,000 
receives $8,000. 

’In the case of the sheriffs, Kings County with 1,798,000 gives 
$15,000, New York with 2,138,000, gives $12,000, Bronx with 
615,600 gives $10,000, and Westchester with 322,000 gives 
$10,000. Erie with 572,000 gives its Sheriff $5,000 and Rich¬ 
mond with less than 100,000 gives $6,000; all of which goes to 
show that little heed has ever been given to the question of making 
the salary approximate a certain fixed relation to the responsi¬ 
bilities of the office. 

It is unreasonable to expect results other than those shown in 
subordinate positions in offices, the heads of which are paid on 
such a haphazard plan. 

Were it possible to adopt a reasonable basis of compensation, 
graduated according to population and duties, the possibilities 
of economies in taxation are almost limitless. 

FURTHER COMPARISON OF COUNTY SERVICE 

On the hypothesis that there should be some uniformity in 
the cost per unit of population, for the various services rendered, 
a table has been prepared (Table II) showing the number of 
persons employed, and the amounts paid annually for personal 
service in the various county offices in each of the eighteen counties 
whose service has been classified. The unit of population chosen 
is 100,000. 






54 


Report of Senate Committee on Civil Service 


It is expected that differences will be manifest at once between 
those counties whose population is largely agricultural and those 
which are largely or entirely urban, but they should be con¬ 
sistent. The tables, however, show the same lack of uniformity 
in methods of employment as must be anticipated after the 
analysis of the unclassified offices, excepting in the offices of 
the District Attorney, where the number of employees and cost 
will naturally be expected to be higher on account of the larger 
proportion of criminals in the counties of urban population. 

SHERIFFS’ OFFICES 

The study of the sheriffs’ offices reveals a new class of 
employees, i. e., those not subject to examination because in a 
sense not public employees at all. (In the matter of Flaherty 
v. Milliken, 193 N. Y. 564.) (See Table) It would seem 
that there must be some discernible rule or reason in consonance 
with which the number of employees affected by this case would 
increase or diminish. Ulster and Chautauqua Counties, with 
populations of 85,000 and 116,800 respectively, have no employees 
under this exemption. On the contrary, Orange, Nassau, Rens¬ 
selaer and Suffolk Counties with populations of 118,000 — 
117,000 — 121,000 and 104,000 have 4, 11, 22 and 4 of these 
exempt positions respectively. 

The counties with a large proportion of urban population, 
i. e., Erie, 572,000 — Monroe, 319,000 — Oneida, 167,000 — 
Onondaga, 214,000 — and Westchester 322,000 have 45, 15, 
13, 7 and 40 exemptions, respectively, while the entirely urban 
counties of Bronx, 615,000 — Kings, 1,798,500 — N ew York, 
2,137,700 — Queens, 396,700 — and Richmond, 98,600 have 43, 
31, 50, 20 and 7, showing, conclusively, that the basis of appor¬ 
tionment is neither on the population nor on the character of the 
population. 

A further analysis of these offices shows that the other service 
in this class varies widely, as evidenced by the tabular comparison 
following. (See Table YI) 

The table of the positions not subject to competition under 
the Flaherty ruling (Table III) indicates the growth of the 
number and the range of positions to which this exception is 
alleged to apply, and its growth is cause for thought. 








Standardization of Public 


Em ployments 


•m/ tm/ 

DO 


COURT DECISION 

Hie decision in the Flaherty case, under which these exemp¬ 
tions were made, was based upon the opinion of Chief Justice 
Cullen that: 

The relation between a sheriff and his appointees so far as 
civil process is concerned, is that of private employment. 

I he sheriff is liable for default of his appointee, and the 
appointee for such default is liable to the sheriff and no 
one else. Deputy sheriffs executing civil process were there¬ 
fore held not subject to the civil service law * * * and 

jail keepers and matrons whose duties, by reason of the fact 
that persons held under both civil and criminal processes 
are detained in the same jail, relate to both classes of prison¬ 
ers, were also held exempt from civil service regulations. 

The Court suggested, in its opinion: 

“ It may, also, be that the Legislature might by appro¬ 
priate statute change the nature of the relation between the 
sheriff and his appointees so that the latter would no longer 
be strictly agents of the former, but independent public 
officers liable for misconduct to anyone injured by the sameD 

In its report of 1908, the Civil Service Commission urged such 
action on the ground that the statute was framed originally to 
meet conditions which no longer exist. 

Nothing has been accomplished in the intervening eight years, 
and the exemption has grown until it includes practically all 
of the jail service — whether there is a responsibility to the 
sheriff or not. 

Why the clerical force of the sheriff comes under the exemp¬ 
tion has not been shown. This Committee recommends legisla¬ 
tion correcting this faulty relationship and providing for the 
classification of positions in the office. 

CONFIDENTIAL POSITIONS 

The word “ confidential ” has completely disappeared from the 
civil service law. (See report of the Attorney-General in State 
Department Reports, Vol. 5, p. 554). It cannot be said that 
because a position is confidential it must, therefore, be in the 
exempt class. On the other hand, there are, of course, many 
positions where the relationships are of such fiduciary character 



56 Report of Senate Committee on Civil Service 

that examination is impracticable. Impracticability of examina¬ 
tion, not title of position, is the test. In view of the above, it 
is interesting to note the number of positions in the table called 
“ confidential.” 

NECESSITY FOR EXTENDING THE STUDY 

The recital of these irregularities and incongruities of the 
county service after the most superficial examinations, must 
make the necessity of a continuance of the work obvious to all 
who are interested in economy and efficiency in government. 
The Committee has had neither funds nor adequate personnel to 
make the exhaustive studies which are necessary. This is a 
task that must be performed by its successor. To accomplish the 
ends sought, the work should not stop with those counties whose 
positions are now in the classified service, but should extend to 
every county in the State, 

t/ 

STATE COURTS 

Table IV shows all of the positions in the exempt class in 
court service and the clerical positions in the competitive class. 
In general, the same criticisms directed against the lack of stand¬ 
ardization are apparent in this service, though the discrepancies 
are not so glaring. The principal inconsistency is in the exemp¬ 
tion of positions in some courts which are competitive in others. 
The most conspicuous example of this is the office of the Chief 
Engineer (court house) Supreme Court, Appellate Division, 
First Department, which is exempt, although the same position 
is competitive in all other departments. 

The exemption of “ confidential ” positions is almost universal. 
There are, however, confidential clerks who are in the competi¬ 
tive class at substantial salaries, $4,500 per annum. This indi¬ 
cates that it is possible to recruit dependable confidential sub¬ 
ordinates from competitive lists. 

The usual laxity in the gradation of salaries of clerical posi¬ 
tions with the title of “ clerk ” is evidenced in the range of 
salaries, i. e., $1,000 to $4,000 —with 10 rates, and 24 
incumbents— 16 of whom receive $3,000 or more. 

The salaries in the courts as a rule are much higher than in 
any other service of the State. 



Standardization of Public Employments 


Granting tliat the courts ought to have the best of service, 
it has been the contention of this Committee at all times that 

i 

the State should in all departments command the best service that 
is on the market and the main purpose of the entire study has 
been to correct the evils of the present system to the end that 
the service in all departments will attract it. 

If the responsibilities of positions bearing the title of “ clerk ” 
are so heavy and the duties so arduous that the incumbents are 
entitled to larger salaries than are given to the elective heads 
of iState Departments and the heads of divisions of departments, 
whose duties involve technical ability, and mature judgment, the 
titles should be changed so as more adequately to denote such 
responsibilities. 

The standardization of the court positions alone will require 
a careful study by the most competent examiners obtainable. 

VILLAGES 

The classified service of the villages, all in Westchester county, 
(Table V) shows lack of uniformity in titles, but not such 
marked differences in salary rates. The largest service is police 
(tabulated below) no specifications for which have been prepared, 
as no study has been possible. 


58 


Report of Senate Committee on Civil Service 


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Standardization of Public Employments 


59 


The above tabulation indicates tlie lack of standards which is 
bound, in time, to cause dissatisfaction in forces working as closely 
together physically as these must. To the proposed control of 
the State Commission in future, would logically fall the task of 
standardizing the police as well as other service, which should 
show more uniformity for a single county, both in titles and rates 
of compensation than is shown above, at least some apparent 
basis of establishment of titles and rates should be evidenced. 


MUNICIPAL COMMISSIONS OF THE STATE 

Under the provisions of the law as at present in force, the State 
Civil Service Commission has jurisdiction over the activities of 
the municipal commissions of the incorporated cities of the State. 
Of these cities, two (Buffalo and Rochester) are in the so-called 
first class, i. e., having a population of over 150,000; seven 
(Albany, Binghamton, Schenectady, Syracuse, Troy, Utica, and 
Yonkers) are in the second class, with a population of from 
50,000 to 150,000. All others are in the third class. 

A number of the municipal commissions in various parts of the 
State have been visited by an examiner from this Committee. 
An exhaustive studv has been made of the work of all of the 
municipal commissions by an analysis of their annual reports to 
the State Civil Service Commission. 


CRITICISM OF REPORTS OF MUNICIPAL COMMISSIONS 

The most notable feature of the reports of the municipal com¬ 
missions of the State is the evident haste and carelessness with 
which a great number of them were prepared. However, in mak¬ 
ing this criticism, it will be well to call attention to the handicaps 
under which the municipal commissions are obliged to labor, in 
only one city, namely, Buffalo, is the salary of the commissioners 
adequate to compensate them, approximately, for the time spent in 
the administration of the Civil Service Law. In the other cities, 
commissioners are either acting as a matter of civic duty without 
compensation, or at nominal salaries, which do not begin to recom¬ 
pense them for the actual time spent in the work. 

In most instances, the personnel of the commissions is of high 
grade men, w T hose probity is unquestioned, but who are unfamiliar 

Note: This report, in no way, refers to the work of the Municipal Com¬ 
mission of New York City, which is, undoubtedly, the most advanced unit of 
civil service administration in the United States. 



60 


Report of Senate Committee ox Civil Service 


with the technique of Civil Service administration and par¬ 
ticularly lacking in the elements of modem Civil Service examina¬ 
tion work. Under these conditions, it is with extreme reluctance 
that this Committee criticises the work of such commissioners, 
realizing that the fault is not inherently theirs. 

The Committee is also reluctant to criticise the State Civil 
Service Commission in its relation to the municipal commissions, 
as it realizes the enormous amount of work claiming its attention 
in Albany, in connection with the State service and the county 
service under its jurisdiction, making it a physical impossibility 
to give to the various municipalities the attention which they need. 

In all of the municipal commissions, much more work could 
be accomplished and, in most, more ought to be done. 

In the tables that have been prepared from the reports of 
the various commissions, the volume of work done is shown, city 
by city. Reduced to a unit cost; (which is exceedingly difficult 
owing to the impossibility of separating functions) in this instance 
the “ cost per candidate examined,” the results are varied and 
startling. 

In the State Commission, where the cost per unit of examination 
is probably less than it ought to be, the cost per candidate examined 
is about $3. With proper rechecking, it is likely that this cost 
would be nearer $4. 

In the cities, the essential and predominating function is that 
of examination, though a large part of the time of the secretaries 
is occupied in the certification of payrolls. However this may be, 
a perusal of these tables shows a great lack of uniformity, which 
must not be surprising under the conditions. 

The establishment of a more uniform and comprehensive classi¬ 
fication will cause more work and require more time from the 
Commissions and their officers and should, therefore, require 
larger appropriations. This is not serious, since, when reduced to 
unit costs, the amounts spent bv the Commissions seem 
inconsiderable. 

The Committee will present a plan by which the volume of 
work may be increased, its quality improved and standardized and 
responsibility for the work assumed absolutely by the State Com¬ 
mission, without placing an appreciable financial burden on any 
one community. 


61 


Standardization of Public Employments 

I lie costs per unit of work will be discussed more at length in 
that section of the report devoted to the plan to rectify the con¬ 
ditions now obtaining. 

LACK OF STANDARD CLASSIFICATION 

One of the requirements of the State Commission in regard 
to the report submitted to it, annually, by the municipal com¬ 
missions is that it contains a roster of the service of the city in 
which all employees of the city shall be listed with their titles, 
salaries, and civil service classification. In many instances, this 
roster consists only of a list of the employees of the city, either 
alphabetically or by department, without notation as to the civil 
service classification. Further analysis of these rosters revealed 
the fact that a position in one city may be, for instance, in the 
unclassified service, and in other cities may be in the exempt, 
competitive or noncompetitive class. To be more specific, in two 
cities the chief of police is placed in the unclassified service, in 
three cities in the exempt class, in eleven in the competitive class 
and in seventeen in the noncompetitive class. Similarly, in the 
fire department, in five cities, the chief of the department is in 
the unclassified service, in eight, in the exempt class, in eight, in 
the competitive class and in seventeen, in the noncompetitive 
class. The city clerk, as an employee of the city council, is 
usuallv in the unclassified service, and it would be reasonable to 
suppose that he would, invariably, be placed there. However, this 
is not the case, as in five cities, he is found in the exempt class 
and in three, he is in the competitive class. 

These instances are merely typical of the lack of sound bases 
for the classification of the city service. 

In no city is there the title of “ Chief Examiner.’’ In most, 
the work of examination is conducted jointly by the commissioners 
with such assistance as the secretary can give. 

With one or two notable exceptions, the secretary of the Civil 
Service Commission is either in the unclassified service or in the 
exempt class. In only one or two instances is the secretary in the 
competitive class. In Rochester and Schenectady, the secretary 
is a direct appointee of the Mayor. While, of course, there is 
nothing theoretically wrong in this method of selection, it may be, 
practically, a source of danger and it seems to this Committee that, 
as the Civil Service Commission is the agency most interested in 


62 


Report of Senate Committee on Civil Service 


the action of its secretary, it should he given a voice in his appoint¬ 
ment. The salary paid the secretary is, in only one instance, 
sufficient to enable him to devote all of his time to the work of the 
Commission. Everywhere throughout the State the labor class 
includes skilled laborers. 

While the classification is originally prepared by the local 
civil service commission, it must be approved both by the Mayor 
of the city and by the State Civil Service Commission before 
taking effect. It is difficult to understand how such wide vari¬ 
ations have been allowed by the State Civil Service Commission in 
the classifications, notwithstanding the fact that the personnel of 
the Commission is subject to change as often as in the cities. In 
many of the city charters, however, there are specific provisions 
for the appointment of various officials that are contrary to the 
best Civil Service practice and that would no doubt require time 
and great effort to eliminate. 

STANDARDIZATION PROGRAMS BEING DISCUSSED 

In the city of Buffalo the question of standardization is now 
being discussed in the city council. It is hoped that this matter 
will receive full and fair discussion in Buffalo and that the early 
spring will see the work of standardization begun there. 

In the city of Rochester, the Bureau of Municipal Research 
of Rochester has been asked to inaugurate a study of the service 
of that city with a view of submitting standard titles and salary 
grades, quite similar to those submitted by this Committee to the 
Legislature in its first report. From present indications, this 
work will be begun in earnest in the spring of 1917. This work of 
standardization should be as uniform as possible throughout the 
cities of the State. There seems to be no reason why the titles 
should not be absolutely uniform, whenever the same functions are 
undertaken. Under the present industrial conditions, however, 
there must, of necessity, be many variations in salary rates and 
grades in different localities, as the conditions in various cities, 
even within short distances of each other, are entirely unlike. 

To bring about a uniformity of classification in the munic¬ 
ipalities of the State that has not prevailed in the past, this Com¬ 
mittee recommends that the work of standardization, through 
which standard specifications would be adopted by individual 
cities, be brought under the direct supervision of a central agency. 


Standardization of Public Employments 


63 


1 his, logically, would be the State Civil Service Commission. But 
the Commission, with its present staff, obviously, could not under¬ 
take any such specialized service. This need is another argument 
for the creation of the Bureau of Standards and Service Records, 
as has been recommended, previously, in this report and in the 
first report of the Committee. 

FORMS 

The forms used in the “ up-state ” commissions are in keeping 
with the classification, namely, diverse, antiquated, and most 
unbusinesslike. Many of the forms used to-day are those which 
were put into operation when civil service was first administered 
and much of the information required on the forms for eligible 
lists and the rosters is omitted as superfluous. In some places, 
even the formality of placing the names on the eligible list in 
the order of the percentage of their ratings is not considered 
necessary, and, in some instances, the ratings themselves are 
omitted. 

EXAMINATIONS 

In general, the examination practice throughout the State has 
not made any great departure from the usual written examination. 
'The examinations are in the main relevant to those things which 
the candidate should know concerning the duties of the positions 
for which application is made, but only in a few instances have 
the commissioners advanced to the stage of oral examinations. 
In Syracuse and Buffalo, this advance has been made with excel¬ 
lent results. While the State Civil Service Commission has ren¬ 
dered aid whenever it has been asked, it is found that, in general, 
there has been very little co-operation among the municipal com¬ 
missions, themselves. An examiner from the State Commission 
with duties indicated in the succeeding pages could do much to 
foster and encourage a spirit of co-operation between the local 
commissions, that would be of great value. 

PROMOTIONAL EXAMINATIONS 

The same condition as that found to exist in the State service 
relative to promotions, if indeed not in greater degree, is found 
throughout the cities. Except in the police and fire departments, 
promotional examinations are rare. The Committee believes that 
bv a proper standardization the municipal service will provide as 


i 


64 Report of Senate Committee on Civil Service 


good opportunity for advancement as employment anywhere, but, 
as with the State service, a system of promotional examinations 
cannot be made effective without a just and sane system of 
efficiency records. A few of the municipal commissions are in 
condition, at the present time, to consider the establishment of 
these records. The State Commission, however, should see to it 
that such records, wherever installed, are properly worked out; 
and, as a matter of correct supervision, the State Commission 
should develop a system which it can recommend to the cities. 
However, no matter how effective a system may be installed, the 
municipalities will be handicapped in its administration just as 
the State Commission now is unless the law is changed to give all 
commissions more power to enforce the keeping of such records. 

MISCELLANEOUS IRREGULARITIES 

In one second class city of the State, the Secretary of the Com¬ 
mission (who is in the competitive class) at one time had a salary 
of $1200. In the preparation of the budget, the Mayor reduced 
this salary to $600. The Commission, however, requires that the 
Secretary devote all of his time between ten o’clock a. m. and four 
p. m. to the routine business of the office. Under such conditions 
it has been necessary for the Secretary to seek employment at 
his trade, which is that of printer, and he is working nights until 
three o’clock in the morning as foreman of a printing establish¬ 
ment. The volume of business during the office hours is not large, 
but it seems that there must be some one there and the Secretarv 
is the only one who is disposed to do this work. Manifestly, the 
deduction of his salary was made with the intention to “ starve ” 
him from the position. This condition should not lie tolerated 
either by the people of that city or by the State Commission. 

In the larger cities the certification of payrolls is by the Sec¬ 
retary of the Commission, and the checking is upon a carefully 
prepared card roster of the service. The certification of payrolls 
becomes more or less perfunctory in many cities, and the roster 
is not consulted at all. In some of the smaller cities, the payrolls 
outside the police service are not sent to the Secretarv of the 

t/ 

Civil Service Commission at all, but are paid without certification. 
This matter should be given much closer attention by the State 
Civil Service Commission. 


Standardization of Public Employments 05 

SUPERVISION BY STATE COMMISSION AND ITS STAFF 

As lias been stated both in the first report of this Committee 
and in this, the personnel of the State Civil Service Commission 
is inadequate to care properly for the functions now made manda¬ 
tory. The law provides that each municipal commission shall be 
visited by the State Commission or its representative, at least once 
in two years. This has not always been done. One municipal 
commission has not been visited by a representative of the State 
Commission for almost, three years, i. e., between December, 1913, 
and October, 1916. The State Commission has been giving such 
assistance in examinations as has been possible. Suggestions as 
to questions and, in fact, whole sets of questions have been sent out 
from Albany to various cities in the State and many questions of 
the municipal examinations are sent “ in toto " to Albany for 
rating. The greater part of the work of municipal commissions, 
however, is connected with the police and tire service of cities. 
In the State service there is nothing analogous to either of these 
services. If the civil service law of municipalities must be ad¬ 
ministered by local commissions, and supervised and criticised 
by the State Commission, it is only fair that the local commissions 
should have expert assistance. Therefore, if the suggestions in 
connection with a new program in administering the civil service 
law in municipalities are not considered worthy of adoption at 
this time, it is recommended that the Civil Service Commission be 
given an adequate appropriation to employ an examiner who has 
had actual experience in municipal work, whose sole responsibility 
should be giving advice to cities as to examinations, office proce¬ 
dure, and the employment of office forms and records by the muni¬ 
cipal commissions. 

TERMS OF MUNICIPAL COMMISSIONERS 

At the present time, it is usual for the personnel of the Com¬ 
mission to change almost as radically with a change of administra¬ 
tion as was formerly the case in the State service. It is, therefore, 
recommended that the terms of municipal commissioners be made 
overlapping and for the same length of time as the tenns of the 

State Commissioners. 


66 Report of Senate Committee on Civil Service 

SUGGESTIONS RE ORGANIZATION OF STAFF OF STATE COMMISSION 
AND ITS CONTACT WITH THE CIVIL SERVICE OF MUNICIPAL¬ 
ITIES AND COUNTIES OF THE STATE 

From the examination recently made of the municipal commis¬ 
sions and an analysis of their activities, the conclusion is reached 
that, without exception, no civil service commission of the State 
is working up to maximum efficiency. 

In its report for 1915, the State Civil Service Commission 
recognizes the necessity for more frequent reviews of the municipal 
civil service commissions. It calls attention to the fact that 
the lack of results in the small cities is due to the small amount 
of work necessary therein and that the work which is done is 
only perfunctory and suggests an extension of the jurisdiction of 
the State Commission. The investigations of this Committee 
show that, taken as a whole, the civil service administration of 
the municipalities of the State is most inefficiently performed. 
Either the local commissions should be greatly strengthened and 
the supervision of the State Commission made much more rigor¬ 
ous, or the whole work should be placed immediately under the 
control of the State Commission. 

In the State of Massachusetts, with a population of over three 
and one-half millions, and in New Jersey, with a population of 
upwards of two and one-half millions, all of the civil service 
administration of the State comes directly within the jurisdic¬ 
tion of the State Commissions. In Neew York State, the condi¬ 
tions are somewhat different owing to the greater area and to the 
fact that the greatest centers of population outside of New York 
City are at the extreme western end of the State. 

The best method that has been presented to the Committee 
for bringing about a more efficient performance of civil service 
functions throughout the State is a districting of the State, each 
district to he under the supervision of an examiner of the State 
Civil Service Commission. This need not apply to cities of the 
first class, whose civil service functions would not he disturbed. 
It is likely, also, that an attempt to bring the administration of 
civil service of the second class cities under direct supervision 
and control of the State Commission would meet with opposition, 
although it may he shown, beyond any doubt, that one examiner 
in a district could easily perform all of the examination work of 


Standardization of Public Employments 07 

all the second class cities in any of the proposed districts, besides 
attending to his other duties. The suggestion, therefore, is to 
bring under this direct supervision of the State Civil Service 
Commission the third class cities and the examination work in 
those counties whose service has been classified. 

PROPOSED SUBDIVISIONS 

Inasmuch as the law recognizes the judicial districts of the 
State as units in administering the work in the classified service, 
the adoption of these districts as units for still further work 
seems practicable. Tables have been prepared showing the civil 
service functions in each judicial district, eliminating those of 
the first and second class cities. In preparing these tables, it 
is found that the population of the various judicial districts 
varies greatly, and another subdivision of the State was made 
in an endeavor to make the population of the districts as nearly 
uniform as possible. Naturally, in both subdivisions, the dis¬ 
tricts embracing New York City are far in excess of the combined 
population of the other districts. However, the civil service 
functions of the area within the greater city will be limited 
entirely to the county service. For the purpose of this study, 
the work of the counties and other subdivisions in the First and 
Second Judicial Districts, together, would make a more logical 
division, for the work in hand. 

TABLES 

The tables, one for each Judicial District, are as complete as 
the records of the Committee permit. The functions of the first 
and second class cities are omitted entirely. This omission 
eliminates the most efficient work done, as well as the preponder¬ 
ance of the expense borne by the local subdivisions. 1 lie cost per 
unit of the units as tabulated, therefore, will not he an index 
of the actual work performed. These costs vary from $5.60, per 
candidate examined, in Judicial District \ 1 to $30.20', per candi¬ 
date, in Judicial District IX, where a total of $4,681, per annum, 
is spent in civil service work, most of this being in Westchester 
County. 

As a matter of fact, these figures are unreliable, except for pur¬ 
poses of comparison. 

It will be noted in the table showing functions in Judicial 
District IY, which has the largest area, also the smallest popu- 


68 


Report of Senate 


Committee on 


Civil Service 


lation, that there are eight cities paying a total of $842, per 
annum, for the salaries of the Commissioners and Secretaries and 
other clerks. These eight cities have an aggregate population of 
127,830. That burden of taxation certainly is not irksome. 

The tables show also the number of positions in the classified 
service of the counties. As it is contemplated that three addi¬ 
tional counties will be classified and brought under the jurisdic¬ 
tion of the State Commission in the near future, the figures show¬ 
ing county functions are susceptible of considerable revision. 


THE ADMINISTRATION OF THE PROPOSED DISTRICTS 

I he primary object of this subdivision is to get better service 
in the municipalities, standardize the work there and relieve the 
pressure of work on the State Commission, by giving to it a repre¬ 
sentative in each district, who will lie familiar with local 
conditions. 


During 1915, the year covered in the tabulations, the State 
Commission held 101 examinations for positions in the county 
and village service, in which 2641 candidates were examined. 
By distributing these examinations through nine districts, a great 
burden will be taken from the force in Albany and a greater 
amount of its time can be devoted to functions now performed 
under pressure or imperfectly. 

Tf this plan is adopted, each district should be in charge of an 
examiner, ( a District Examiner v would be an appropriate title) 
whose duties would be to have charge of all examination work 
in the counties and third class cities in his district, and who 
would be in general charge of State examinations in his district 
under the direction of the Chief Examiner of the Commission. 

It should also be his duty to be in constant communication 
with the first and second class cities of his district, giving such 
advice and aid as may be asked of him and checking up pro¬ 
cedure for the State Commission when not called upon by the 
local commission. 


It is believed that this plan will be more satisfactory than the 
plan recently adopted in Ohio, of county commissions for all 
counties whose pay rolls are $5000 per month or more. 

By this means, the State Commission will have direct control 
over all civil service matters in the State except in ten cities 


Standardization of Public Employments 


69 


(first and second class) and a much more frequent and direct 
supervision over them. Work in Albany will he relieved of the 
present stress and much more thorough examinations, particularly 
as to training, experience and character will he possible. 

EXPENSE 

The municipalities of the State are now paying a total of $39,- 
376 for administration of civil service for an aggregate popula¬ 
tion of 1,339,141, roughly $20 per thousand inhabitants. 

The rest of the urban population of the State is paying for its 
civil service administration at the rate of $11,696 for 868,679 of 
its population or slightly less than $13.50 per thousand 
inhabitants. 

New Rochelle, with 31,758 inhabitants, is paying at the rate 
of $61 per thousand, Ml. Vernon, with 37,583, pays almost $60 
per thousand. From these high figures, the rate per thousand 
varies to nothing. Poughkeepsie, slightly larger than New 
Rochelle, pays $300 per annum, or at the rate of slightly less 
than $10 per thousand, or less than one cent per year for each 
inhabitant. 

If civil service has a valuation in dollars in New Rochelle, 
there should be a means of measuring its value in dollars in Port 
Jervis, Oneonta, Mechanicville, Plattsburg, Norwich and Dun¬ 
kirk, which cities have their work done for nothing. 

This Committee believes that it should be mandatory for every 
city to contribute a stated amount, based on population, to main¬ 
tain this branch of government. 

The functions of government increase much faster than the 
population. For a city the size of Buffalo, probably $35 per 
thousand would he adequate for all functions contemplated. 

GENERAL PLAN 

To illustrate the general plan — the Committee has assumed 
$20 per thousand as a minimum to he assessed on cities below 
20,000 population, $22.50 for cities between 20,000 and 30,000, 
$25 for cities between 30,000 and 40,000 and $30 for cities 
between 40,000 and 50,000. For the work in counties now classi¬ 
fied, an assessment of $5 per thousand in the “ up state ” coun¬ 
ties and $1.50 per thousand in Districts I and II. 

4 



70 


Report of Senate Committee on Civil Service 


The amounts that would be available for expenses under this 
plan are tabulated below: 


District 

Cities 

Counties 

Total 

1 and II. 


$7,902 

1,946 

$7,902 

3,819 

Ill. 

. $1,873 

IV. 

. 2,771 


2,771 

4,056 

V. 

. 2,150 

1,906 

VI. 

. 2,345 


2,345 

VII . 

. 1,781 

1,596 

3,377 

VIII. 

. 4,512 

3,965 

8,477 

IX. 

. 4,201 

2,199 

6,430 


$19,663 $19,514 $39,177 


This total is very nearly the aggregate now derived from all 
the cities of the State, including those of the first and second 
class. 

In Districts III, IV and V, in which the sums thus derived are 
least, it would be possible to conduct operations from headquar¬ 
ters in Albany. 

In Districts VI and VII, the volume of work is not so great 
that the work of both could not be combined for administrative 
purposes and covered by one examiner. 

PERSONNEL AND LOCATION OF DISTRICT OFFICES 

As the work will vary in the Districts, no rule for the office 
force can be made without a more thorough analysis of the fixed 
work than is now possible. 

The “ District Examiner ” in all cases, should be chosen by the 
State Commission for his fitness for the work. As the functions 
of the position will be largely supervisory, there should be a grade 
between the “ Senior Civil Service Examiner ” and “ Chief Ex¬ 
aminer/’ with rates from $2700 to $3300 or higher. He should 
be given such assistants as may be required by the developments 
in his district. 

The location of the District offices should be in the most con¬ 
venient city within the District, not necessarily in the metropolis. 
Candidates for positions should be chosen regardless of present 
residence within the State, and it may be necessary, in the prepa¬ 
ration of an eligible list, to remove all restrictions as to residence. 






















STATISTICAL TABULATION OF CIVIL SERVICE FUNCTIONS IN JUDICIAL DISTRICTS I & II 

County and Village Service Only 

All city civil service functions are at present under the jurisdiction of the Civil Service Commission of New York City 


Standardization of Public Employments 


71 













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Statistical Tabulation of Civil Service Functions in Judicial District No. IV 


72 


Report of Senate Committee on 


Civil Service 


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Statistical Tabulation of Civil Service Functions in Judicial District No. VI 


Standardization of Public Employments 


73 


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Cost per candidate, $7.69. * No report. 














































































































































































































































































































































































74 


Report of Senate Committee on Civie Service 




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* No report 

Cost per candidate, $30.20. 


























































































































TABLE I 


CLERICAL SERVICE 


[ 75 ] 










TABLE I 

CLERICAL SERVICE 


TITLE 

Abstractors. 

Abstractors. 

Abstractor in charge. 

Abstractors and searchers. 

Abstractors and title searchers 

Accountant. 

Accountant. 

Attendant, court. 

Attendant, court. 

Attendants, court. 

Attendants, court. 

Attendants, court. 

Attendants, court. 

Attendants, court. 

Attendants to judge. 

Attendant to surrogate. 

Attendant to surrogate. 

Attendants, chief court....... 

Attendant, chief court. 

Attendants, confidential court. 

Auditor. 

Auditor. 

Auditor. 

Auditor. 

Auditor, assistant. 

Bookkeeper. 

Bookkeeper. 

Bookkeeper. 

Bookkeepers. 

Bookkeeper. 

Bookkeeper. 

Bookkeepers. 

Bookkeeper. 

Bookkeeper. 

Bookkeeper. 

Bookkeeper, assistant. 

Bookkeeper, chief. 

Bookkeeper and accountant.. . 

Bookkeeper and clerk. 

Cashier. 

Cashier. 

Cashiers. 

Cashiers. 

Cashiers. 

Cashiers. 

Cashiers. 

Cashier. 

Cashiers. 

Cashier. 

Cashier, assistant. 

Cashier, assistant. 

Cashier and bookkeeper. 

Clerk. 

Clerks. 


Number 

Salary- 

2 

Si, 000 00 

19 

1,200 00 

1 

1,650 00 

5 

1,320 00 

5 

Fees 

1 

1,500 00 

1 

2,000 00 

1 

S3 00 per day 

1 

$1,020 00 

5 

1,500 00 

4 

1,600 00 

5 

1,700 00 

52 

1,800 00 

14 

2,000 00 

7 

1,800 00 

1 

1,020 00 

1 

1,200 00 

8 

1,800 00 

1 

3,500 00 

2 

1,500 00 

1 

1,650 00 

1 

2,000 00 

1 

2,600 00 

1 

2,340 00 

1 

1,350 00 

1 

100 00 

1 

660 00 

1 

780 00 

3 

1,200 00 

1 

1,320 00 

1 

1,350 00 

3 

1,500 00 

I 

1,600 00 

1 

1,650 00 

1 

2,000 00 

1 

1,500 00 

1 

2,000 00 

1 

1,000 00 

1 

1,800 00 

1 

1,080 00 

1 

1,176 00 

2 

1,200 00 

4 

1,500 00 

2 

1,700 00 

4 

1,800 00 

3 

2,000 00 

1 

2,200 00 

4 

2,500 00 

1 

3,000 00 

1 

1,350 00 

1 

1,600 00 

1 

1,800 00 

1 

300 00 

3 

540 00 


[77] 
























































I o 


Report of Senate Committee on Civil Service 


Clerical Service — Continued 


TITLE 

Clerk. 

Clerks. 

Clerks. 

Clerk. 

Clerks. 

Clerk. 

Clerk. 

Clerks. 

Clerk. 

Clerks. 

Clerks.•. 

Clerks. 

Clerks. 

Clerk. 

Clerks. 

Clerk. 

Clerks. 

Clerk. 

Clerk. 

Clerks. 

Clerk. 

Clerks. 

Clerk. 

Clerks. 

Clerk. 

Clerks.. 

Clerks. 

Clerks. 

Clerk. 

Clerk. 

Clerk. 

Clerks. 

Clerk. 

Clerks. 

Clerk. 

Clerk. 

Clerks. 

Clerks. 

Clerk. 

Clerks, abstract. 

Clerks, abstract. 

Clerks, abstract. 

Clerks, accounting. 

Clerks, accounting. 

Clerk, accounting. 

Clerk, accounting. 

Clerk, accounting, assistant 
Clerk, accounting, assistant 

Clerks, administration. 

Clerk, administration. 

Clerk, administration, assistant. 
Clerk, administration, assistant. 
Clerk, administration, assistant. 
Clerk, administration, assistant. 

Clerk, arrangement. 

Clerk, arrest. 

Clerk, assistant and court. 

Clerk, assistant and court. 

Clerk, assistant and court. 

Clerk, assistant and court. 

Clerk, assistant. 


iber 

Salary 

1 

$600 00 

2 

720 00 

o 

S-J 

800 00 

1 

840 00 

7 

900 00 

1 

925 00 

1 

960 00 

12 

1,000 00 

1 

1,050 00 

2 

1,080 00 

9 

1,100 00 

112 

1,200 00 

2 

1,225 00 

1 

1,250 00 

2 

1,260 00 

1 

1,275 00 

4 

1,300 00 

1 

1,320 00 

1 

1,325 00 

12 

1,350 00 

1 

1,360 00 

13 

1,400 00 

1 

1,440 00 

40 

1,500 00 

1 

1,525 00 

6 

1,530 00 

6 

1,600 00 

3 

1,650 00 

1 

1,680 00 

1 

1,700 00 

1 

1,750 00 

14 

1,800 00 

1 

1,900 00 

23 

2,000 00 

1 

2,100 00 

1 

2,300 00 

5 

2,500 00 

2 

3,000 00 

1 

4,000 00 

4 

Fees 

3 

1,650 00 

1 

1,800 00 

1 

1,500 00 

1 

2,100 00 

1 

3,000 00 

1 

4,000 00 

1 

1,500 00 

1 

2,000 00 

2 

3,000 00 

1 

3,500 00 

1 

1,500 00 

1 

1,800 00 

1 

2 , 10 a oo 

1 

2,400 00 

1 

1,650 00 

1 

1,200 00 

1 

720 00 

1 

1,080 00 

1 

1,500 00 

1 

1,650 00 

1 

540 00 































































Standardization of Public Employments 


79 


Clerical Service — Continued 

TITLE Number Salary- 

Clerk, assistant. 1 $1,00000 

Clerk, assistant. 1 1,120 00 

Clerk, assistant. 1 \ 500 00 

Clerk, assistant. 1 2 000 00 

Clerk, assistant. 1 2 500 00 

Clerk, assistant. 1 3 000 00 

Clerk, Bertillon. 1 1*300 00 

Clerk, back tax... 1 1,050 00 

Clerk, bail and forfeited recognizance. 1 1,800 00 

Clerk, bond. 1 1,000 00 

Clerk, calendar. 1 1 f 320 00 

Clerk, calendar. 1 2*000 00 

Clerk, calendar. 1 2,400 00 

Clerk, calendar and superintendent of copyists. 1 1,500 00 

Clerk, block index. 

Clerk, chief block index. 1 2,500 00 

Clerk, chief block index. 1 3,000 00 

Clerk, chief block index, assistant. 1 1,500 00 

Clerk, chief, current block index. 1 1,800 00 

Clerk, certificate. 1 1,200 00 

Clerk, certificate. 1 1,500 00 

Clerk, certificate. 1 1,700 00 

Clerk, certified copy. 1 1,500 00 

Clerk, chattel card. 1 1,260 00 

Clerk, chattel mortgage. 1 840 00 

Clerks, chattel mortgage. 2 1,200 00 

Clerk, chattel mortgage. 1 1,500 00 

Clerk, chattel mortgage. 1 1,650 00 

Clerk, chattel mortgage. 1 2,580 00 

Clerk, chattel mortgage, assistant. 1 960 00 

Clerk, chattel mortgage, assistant. 1 1,350 00 

Clerk, check. 1 1,050 00 

Clerk, chief. 1 1,500 00 

Clerk, chief. 1 1,800 00 

Clerks, chief. 2 2,000 00 

Clerk, chief. 1 2,100 00 

Clerk, chief. 1 2,400 00 

Clerks, chief. 5 2,500 00 

Clerks, chief. 2 2,700 00 

Clerk, chief. 1 3,400 00 

Clerk, chief. 1 3,500 00 

Clerks, chief. 2 5,000 00 

Clerk, chief. 1 10,000 00 

Clerk, chief deputy. 1 3,500 00 

Clerk, chief deputy and auditor. 1 3,500 00 

Clerk, chief deputy assistant. 1 2,600 00 

Clerk, chief civil action. 1 960 00 

Clerk, chief, civil and typewriter copyist. 1 600 00 

Clerks, chief copying. 3 6 cents per folio 

Clerk, coroner’s. 1 $600 00 

Clerk, comparing. 1 720 00 

Clerk, comparing. 1 1,200 00 

Clerk, comparing. 1 1,500 00 

Clerks, comparing. 2 1,800 00 

Clerk, comparing. 1 2,000 00 

Clerk, confidential and stenographer. 1 1,200 00 

Clerks and copyists. 8 $2 50 per day 

Clerk in charge of records. 1 $1,200 00 

Clerk of records. 1 1 > 800 00 

Clerk of common pleas. 1 2,500 00 
































































80 Report of Senate Committee on Civil Serv 


Clerical Service — Continued 
TITLE Number 

Clerk of court. 

Clerk of court. 

Clerk of court.. 

Clerk of court. 

Clerks of court. 6 

Clerk of court. 1 

Clerks of court. 6 

Clerk of court. 

Clerk of court. 

Clerk of court. 

Clerk of court. 1 

Clerks of court. 5 

Clerk of court. 1 

Clerks of court. 6 

Clerks of court. 2 

Clerks of court. 2 

Clerk of court. 

Clerk of court. 1 

Clerk of court. 1 

Clerk of court. 

Clerk of court, deputy. 1 

Clerks of court, deputy. 2 

Clerk of court, deputy. 1 

Clerks of court, deputy. 16 

Clerk of court, deputy. 1 

Clerks of court, deputy assistant. 2 

Clerks of court, deputy special. 4 

Clerk of court, deputy special. 1 

Clerks of court, deputy special assistant. 2 

Clerk of court. 1 

Clerk to additional part of court. 1 

Clerks to grand jury. 2 

Clerk to grand jury. .. 1 

Clerk to judge. 1 

Clerk to judge. 1 

Clerks to judge. 4 

Clerks to judge. 7 

Clerks and stenographers. 2 

Clerk and stenographer. 1 

Clerk and stenographer. 1 

Clerks and stenographers. 2 

Clerk and stenographer. 1 

Clerk and stenographer. 1 

Clerk and stenographer. 1 

Clerks and stenographers. 2 

Clerk and stenographer. 1 

Clerk to surrogate. 1 

Clerk and typewriter copyist. 1 

Clerk and typewriter copyist. 1 

Clerk and typewriter copyist.. . 1 

Clerk and typewriter copyist. 1 

Clerks and utility man. 2 

Clerks, special deputy county. 2 

Clerk, special deputy county. 1 

Clerk, special deputy county. 1 

Clerks, special deputy county. 3 

Clerk, special deputy county. 1 

Clerk, special deputy county. 1 

Clerk, delivery. 1 

Clerk, delivery. 1 

Clerk, delivery. 1 































































Standardization of Public 


Employments 


81 


Clerical Service — Continued 


TITLE 

Clerk, delinquent tax. 

Clerk, diagram and filing. 

Clerk, entry. 

Clerk, entry. 

Clerk, entry. 

Clerk, entry assistant. 

Clerks, equity. 

Clerk, equity. 

Clerk, equity and law. 

Clerk, equity assistant. 

Clerk, executive. 

Clerk, executive. 

Clerk, exemption and enrollment. 

Clerk, expert. 

Clerk, file. 

Clerk, file and registration. 

Clerk, financial. 

Clerk, financial deputy. 

Clerk, fine and exempt. 

Clerk, finger print. 

Clerk, first. 

Clerk, general. 

Clerks, general. 

Clerk, general. 

Clerks, general. 

Clerk, general.. 

Clerk, general. 

Clerks, general. 

Clerks, general. 

Clerk, general. 

Clerk, general. 

Clerk, general. 

Clerks, general. 

Clerks, general. 

Clerks, general.. 

Clerk, general and searcher. 

Clerk, guardian. 

Clerk, guardian. 

Clerk, guardian assistant. 

Clerk, guardian and accounting. 

Clerk, guardian and accounting. 

Clerk, guardian assistant and accounting 
Clerk, guardian general and accounting.. 

Clerk, index. 

Clerks, index.-. 

Clerk, index. 

Clerks, index. 

Clerk, index. 

Clerks, index. 

Clerks, index. 

Clerk, index. 

Clerk, index. 

Clerk, index. 

Clerks, index. 

Clerks, index. 

Clerk, index... 

Clerk, index and accounting. 

Clerks, index assistant. 

Clerk, index chief. 

Clerk, index chief. 

Clerk, index chief. 


Number Salary 


1 

$1,080 

00 

1 

1,400 

00 

1 

1,200 

00 

1 

1,500 

00 

1 

1,800 

00 

1 

1,200 

00 

5 

2,000 

00 

1 

3,060 

00 

1 

3,000 

00 

1 

1,800 

00 

1 

1,650 

00 

1 

2,340 

00 

1 

1,200 

00 

1 

3,000 

00 

1 

720 

00 

1 

1,500 

00 

1 

2,500 

00 

1 

2,000 

00 

1 

1,800 

00 

1 

1,200 

00 

1 

1,800 

00 

1 

520 

00 

3 

1,000 

00 

1 

1,080 

00 

37 

1,200 

00 

1 

1,350 

00 

1 

1,380 

00 

4 

1,400 

00 

5 

1,500 

00 

1 

1,560 

00 

1 

1,680 

00 

1 

1,800 

00 

2 

2,000 

00 

3 

2,100 

00 

2 

2,400 

00 

1 

1,400 

00 

1 

2,000 

00 

1 

2,100 

00 

1 

1,800 

00 

1 

2,000 

00 

1 

3,000 

00 

1 

1,000 

00 

1 

1,200 

00 

1 

780 

00 

3 

800 

00 

1 

900 

00 

5 

1,000 

00 

1 

1,080 

00 

14 

1,200 

00 

4 

1,320 

00 

1 

1,400 

00 

1 

1,425 

00 

1 

1,450 

00 

7 

1,500 

00 

3 

1,560 

00 

1 

2,300 

00 

1 

1,600 

00 

7 

1,500 

00 

1 

1,600 

00 

1 

1,800 

00 

1 

2,000 

00 































































82 


Report or Senate Committee on Civil Service 


Clerical Service — Continued 


TITLE 

Clerk, index chief assistant. 

Clerk, indictment. 

Clerks, indictment. 

Clerk, information. 

Clerk, information. 

Clerk, information. 

Clerk, judgment. 

Clerk, judgment. 

Clerk, judgment. 

Clerk, junior. 

Clerk, junior. 

Clerks, junior. 

Clerk, law. 

Clerk, law. 

Clerk, law and assistant. 

Clerk, law assistant. 

Clerk, lunacy. 

Clerks, mailing. 

Clerk, map. 

Clerk, marriage license. 

Clerk, marriage license. 

Assistant chief, marriage license bureau. 

Chief, marriage license bureau. 

Clerk, chief marriage license. 

Clerk, mechanic’s lien and lis pendens. . 
Clerk, mechanic’s lien and lis pendens. . 

Clerk, mortgage tax. 

Clerks, mortgage tax. 

Clerk, mortgage tax. 

Clerk, mortgage tax. 

Clerk, naturalization. 

Clerk, naturalization and assistant court 

Clerk, naturalization assistant. 

Clerk, notarial. 

Clerks, notarial. 

Clerk, notarial. 

Clerk, notarial. 

Clerk, probate. 

Clerk, probate. 

Clerk, probate. 

Clerk, probate.:. 

Clerk, probate assistant. 

Clerks, probate assistant. 

Clerk, probate assistant. 

Clerk, receiving. 

Clerk, record. 

Clerks, record. 

Clerks, record. 

Clerks, record. 

Clerk, record. 

Clerks, record. 

Clerks, record chief. 

Clerk, record chief. 

Clerk, record assistant. 

Clerks, recording. 

Clerks, recording. 

Clerks, recording. 

Clerk, recording. 

Clerks, recording. 

Clerks, recording. 

Clerks, recording. 


ber 

Salary 

1 

$1,500 00 

1 

1,500 00 

2 

2,000 00 

1 

1,500 00 

1 

2,000 00 

1 

2,500 00 

1 

900 00 

1 

1,000 00 

1 

1,075 00 

1 

300 00 

1 

540 00 

2 

600 00 

1 

1,500 00 

1 

3,500 00 

1 

3,000 00 

1 

2,500 00 

1 

600 00 

2 

1,500 00 

1 

1,500 00 

1 

720 00 

I 

1,080 00 

1 

1,200 00 

1 

1,500 00 

1 

1,500 00 

1 

1,300 00 

1 

1,500 00 

1 

600 00 

2 

900 00 

1 

1,000 00 

I 

1,800 00 

1 

1,500 00 

1 

1,800 00 

1 

1,200 00 

1 

1,200 00 

2 

1,800 00 

1 

2,250 00 

1 

2,500 00 

1 

1,500 00 

1 

3,000 00 

1 

3,500 00 

1 

5,000 00 

1 

1,350 00 

2 

2,100 00 

1 

2,400 00 

1 

1,360 00 

1 

950 00 

5 

1,080 00 

4 

1,200 00 

5 

1,500 00 

1 

1,800 00 

9 

3,000 00 

2 

1,800 00 

1 

2,100 00 

1 

1,500 00 

20 

5 cents per folio 

7 

$600 00 

12 

660 00 

1 

700 00 

8 

780 00 

24 

1,200 00 

11 

1,300 00 































































83 


Standardization of Public Employments 


Clerical Service — Continued 


TITLE 

Clerks, recording. 

Clerk, recording. 

Clerk, recording chief. 

Clerk, recording chief assistant. 

Clerk, recording and librarian. 

Clerk, recording and librarian.. 

Clerk, superintendent of recording. 

Clerk, requisition. 

Clerk, satisfaction. 

Clerk, satisfaction. 

Clerk, satisfaction. 

Clerk, satisfaction assistant. 

Clerk, satisfaction chief. 

Clerk, satisfaction chief assistant to. 

Clerk, search. 

Clerks, search assistant. 

Clerk, second. 

Clerk, sheriff’s. 

Clerk, sheriff’s. 

Clerk, sheriff’s deputy. 

Clerk, sheriff’s under. 

Clerk, subpoena. 

Clerk, supervising. 

Clerk, tax. 

Clerk, tax. 

Clerk, tax sales.. 

Clerk, tax sales assistant.. 

Clerk, transfer tax. 

Clerks, transfer tax. 

Clerks, transfer tax. 

Clerks, transfer tax. 

Clerk, transfer tax. 

Clerk, transfer tax. 

Clerk, transfer tax. 

Clerk, transfer tax, assistant. 

Clerk, transfer tax, assistant. . . .. 

Clerk, tickler. 

Clerk, tickler. 

Clerks, tickler, assistant. 

Clerk, tickler, assistant. 

Clerk, tickler, assistant. 

Clerk, tickler, chief. 

Clerks, transcript. 

Chief, map division. 

Assistant chief, map division. 

Chief of locating division. 

Chief of town record division and translator... 

Chief of comparing division. 

Clerk, chief of old records. 

Clerk, chief of law r department. 

Clerk, chief of certificates. 

Clerk, chief of records. 

Clerk, chief of records. 

Clerk, chief of records and interpreter. 

Clerk, assistant chief of records and interpreter 

Chief of old records. 

Assistant chiefs of old records. 

Chief of division of ancient records. 

Commissary. 

Comparers. 

Comparers. 


ber 

Salary 

12 

$1,500 00 

1 

1,700 00 

1 

1,800 00 

1 

1,500 00 

1 

800 00 

1 

1,400 00 

1 

2,000 00 

1 

1,000 00 

1 

1,500 00 

1 

1,650 00 

1 

2,000 00 

1 

1,500 00 

1 

3,060 00 

1 

2,400 00 

1 

1,400 00 

2 

624 00 

1 

1,300 00 

1 

1,200 00 

1 

1,800 00 

1 

960 00 

1 

1,080 00 

1 

1,500 00 

1 

2,580 00 

1 

1,100 00 

1 

1,200 00 

1 

1,800 00 

1 

1,500 00 

1 

720 00 

4 

1,000 00 

2 

1,200 00 

2 

1,500 00 

1 

1,800 00 

1 

2,000 00 

1 

2,400 00 

1 

1,500 00 

1 

1,800 00 

1 

1,350 00 

1 

2,500 00 

2 

1,350 00 

1 

1,500 00 

1 

1,800 00 

1 

2,000 00 

13 25 cents per hour 

1 

$2,100 00 

1 

1,500 00 

1 

1,800 00 

1 

1,800 00 

1 

1,800 00 

1 

1,800 00 

1 

2,500 00 

1 

3,000 00 

1 

1,800 00 

1 

3,000 00 

1 

3,000 00 

1 

1,350 00 

1 

1,500 00 

2 

1,500 00 

1 

1,800 00 

1 

800 00 

4 

650 00 

2 

675 00 































































84 Report of Senate Committee on Civil Service 

Clerical Service — Continued 

TITLE Number Salary 

Comparers. 8 $1,500 Ojj 

Comptroller, bookkeeper and accountant. 1 800 00 

Copyists. 23 4 cents per folio 

Copyists. 32 5 cents per folio 

Copyist. 1 $900 00 

Copyists. 40 1,200 00 

Copyists of mutilated records. 17 1,500 00 

Copyist, pen. 1 1,500 00 

Copyists, typewriter. 6 5 cents per folio 

Copyists, typewriter. 6 25 cents per page 

Copyist, typewriter. 1 $600 00 

Copyists, typewriter. 3 660 00 

Copyists, typewriter. 4 780 00 

Copyist, typewriter. 1 900 00 

Copyists, typewriter. 6 1,000 00 

Copyists, typewriter. 31 1,200 00 

Court criers. 2 $3 00 per day 

Court crier. 1 $720 00 

Court crier. 1 900 00 

Couri; crier. 1 1,300 00 

Court crier. 1 1,800 00 

Custodians. 2 840 00 

Custodians. 2 900 00- 

Custodians. 8 1,000 00 

Custodian. 1 1,050 00 

Custodians. 21 1,200 00 

Custodian. 1 1,300 00 

Custodians. 2 1,350 00 

Custodian. 1 1,500 00 

Custodian of maps. 1 1,500 00 

Custodian and filing clerk. 1 1,025 00 

Custodian of records. 1 1 f 080 00 

Examiners. 4 1,350 00 

Examiner. 1 1,500 00 

Examiner, mortgage tax bureau. 1 2,500 00 

Examiner, mortgages. 1 2,100 00 

Examiner in charge. 1 1 } 650 00 

Examiner, assistant. 1 1 } 350 00 

Examiner, chief. 1 1 , 500 00 

Examiner, chief.. 1 2,500 00 

Examiner, chief, and indexer of records. 1 2,400 00 

Firemen and process servers. 3 900 00 

Indexer. 

Indexer, assistant. 1 7go 00 

Indexer, general. 1 84Q 00 

Indexer, general. 1 1,300 00 

Indexer, special. 1 720 00 

Interpreters. 2 800 00 

Interpreter. 1 1,000 00 

Interpreter. 1 1,020 00 

Interpreter. 1 1,200 00 

Interpreters. 2 $3 to $5 per day 

Interpreter. 1 $1,500 00 

Interpreters. 2 1,800 00 

Interpreter. 1 2,000 00 

Interpreters. 5 2,500 00 

Interpreter. 1 3,000 00 

Jury notice server. X 1 Q00 00 

Jury notice servers. 11 1,200 00 

































































Standardization of Public Employments 85 

Clerical Service — Continued 

TITLE Number Salary- 

Jury notice servers. 3 $1,300 00 

Locators. 7 1,200 00 

Messenger. 1 300 00 

Messengers. 7 600 00 

Messengers. 6 720 00 

Messenger. 1 750 00 

Messengers. 4 800 00 

Messengers. 6 840 00 

Messengers. 3 900 00 

Messenger. 1 1,000 00 

Messenger. 1 1,080 00 

Messengers. 6 1,200 00 

Messenger. 1 1,300 00 

Messenger. 1 1,400 00 

Messengers. 2 1,500 00 

Messengers. 3 1,800 00 

Messengers and notice servers. 8 1,400 00 

Messenger, special and subpoena server. 1 1,200 00 

Messenger, bank. 1 1,000 00 

Messenger, chief and librarian. 1 1,800 00 

Mortgage tax deputy. 1 2,300 00 

Motor-cycle officers and special process servers. 5 1,716 00 

Office assistant. 1 1,200 00 

Office boy. 1 300 00 

Office boys. 3 420 00 

Page. 1 100 00 

Page. 1 380 00 

Process server.\. 1 840 00 

Process servers. 4 900 00 

Process servers. 10 1,000 00 

Process servers. 43 1,200 00 

Process servers. 6 1,350 00 

Process servers. 14 1,500 00 

Proofreaders. 2 720 00 

Process server and clerk. 1 1,500 00 

Process servers and janitors. 2 720 00 

Process server, chief. 1 2,000 00 

Recorders. 6 520 00 

Recorder. 1 600 00 

Recorder. 1 624 00 

Recorders. 4 700 00 

Recorder and typist. 1 800 00 

Recorder and typist. 1 900 00 

Recorder of deeds. 1 5 cents per folio 

Recorder of mortgages.,. 1 5 cents per folio 

Register, assistant deputy. 1 $2,500 - 00 

Register, assistant deputy.•. 1 3,000 00 

Register, assistant deputy. 1 4,000 00 

Register, special deputy. 1 * 2,500 00 

Register, special deputy. 1 5,000 00 

Register, assistant special deputy. 1 3,000 00 

Searcher. 1 1,000 00 

Searchers. 2 F ees 

Searchers. 2 $1,080 00 

Searcher. 1 1,400 00 

Searchers. 3 1,500 00 

Searcher. 1 1,800 00 

Searcher. 1 2,000 00 

Searcher, correspondence. 1 1,500 00 

Searcher, special. 1 1,500 00 

Searcher and special deputy. 1 11600 00 































































86 


Report of Senate 


Committee on 


Civil Service 


Clerical Service — Continued 


TITLE 

Searcher and examiner. 

Searcher, assistant. 

Searcher, assistant and comparer. 

Secretary . 

Secretary . 

Secretaries. 

Secretary. 

Secretaries. 

Secretaries. 

Secretary . 

Secretaries. 

Secretary and stenographer. 

Secretary and stenographer. 

Secretary, confidential. 

Secretary, private. 

Secretary, private. 

Secretary, private. 

Stenographer. 

Stenographers. 

Stenographer. 

Stenographers. 

Stenographer. 

Stenographer. 

Stenographer. 

Stenographers. 

Stenographers. 

Stenographers. 

Stenographer.:. 

Stenographers. 

Stenographer. 

Stenographer. 

Stenographers. 

Stenographers. 

Stenographers. 

Stenographers. 

Stenographers. 

Stenographers. 

Stenographer. 

Stenographer and indictment clerk. 

Stenographer and indexer. 

Stenographer and recorder. 

Stenographer and typewriter copyist. 

Stenographer-copyist. 

Stenographer-copyist. 

Stenographer, confidential. 

Stenographer, confidential. 

Stenographer, confidential. 

Stenographer, confidential. 

Stenographers, confidential.. 

Stenographers, confidential. 

Stenographer, confidential. 

Stenographer, confidential, and typewriter copyist 

Stenographer, court. 

Stenographer, court. 

Stenographers, court. 

Stenographers, court. 

Stenographer, court. 

Stenographer, court. 

Stenographers, court.. 

Stenographers, court. 

Stenographer, court. 


ber 

Salary 

1 

$2,000 00 

1 

1,200 00 

1 

1,500 00 

1 

720 00 

1 

1,000 00 

5 

1,200 00 

1 

1,275 00 

4 

1,500 00 

3 

2,000 00 

1 

2,340 00 

2 

3,000 00 

1 

720 00 

1 

950 00 

1 

500 00 

1 

2,000 00 

1 

3,000 00 

1 

3,900 00 

1 

300 00 

2 

GOO 00 

1 

GG0 00 

11 

720 00 

1 

763 20 

1 

780 00 

1 

800 00 

4 

840 00 

2 

900 00 

2 

950 00 

1 

960 00 

3 

1,000 00 

1 

1,080 00 

1 

1,100 00 

24 

1,200 00 

2 

1,350 00 

3 

1,400 00 

19 

1,500 00 

2 

2,000 00 

2 

2,500 00 

1 

2,750 00 

1 

1,800 00 

1 

960 00 

1 

720 00 

1 

1,200 00 

1 

1,200 00 

1 

1,500 00 

1 

800 00 

1 

900 00 

1 

1,020 00 

1 

1,080 00 

2 

1,200 00 

3 

1,500 00 

1 

1,800 00 

1 

900 00 

1 

700 00 

1 

750 00 

2 

1,500 00 

2 

1,800 00 

1 

2,000 00 

1 

2,500 00 

3 

$10 00 per day 

5 

$3,000 00 

1 

3,250 00 































































Standardization of Public Employments 


87 


Clerical Service— Continued 


TITLE 

Stenographer, court. 

Stenographers, court. 

Stenographers, court. 

Stenographer to grand jury. .. 

Stenographer to grand jury. 

Stenographer to grand jury. 

Stenographer to grand jury. 

Stenographers to grand jury. 

Stenographer to grand jury. 

Stenographers to grand jury. 

Stenographers to grand jury. 

Stenographer, executive... 

Stenographers, law:. 

Stenographers, law. 

Stenographer, law. 

Stenographer, law, chief. 

Storekeeper. 

Superintendent of block indexing. 

Superintendents of block indexing. 

Superintendent of indexing. 

Superintendent of records. 

Superintendent of records. 

Superintendents of records. 

Superintendent of records, assistant. 

Superintendent of records, assistant. 

Superintendent of supplies. 

Supervisor of reindexing. 

Supervisor of copying of mutilated records.. 

Supervisor of copying of mutilated records. 

Telephone operator. 

Telephone operator. 

Telephone operators. 

Telephone operators. 

Telephone operators. 

Telephone operator. 

Telephone operators. 

Telephone operator. 

Telephone operator. 

EDUCATIONAL 

Librarians. 

Librarian.. 

Librarian. 

Librarian. 

Librarian. 

Librarians.. 

Librarian. 

Librarian, assistant. 

Librarian, assistant and messenger. 

Library attendant. 

Page and librarian. 


Number 


ir 

Salary 

1 

$3,500 00 

6 

3,600 00 

5 

4,000 00 

1 10 cents per folio 

1 

$800 00 

1 

1,200 00 

1 $6 00 per day 

3 

10 00 per day 

1 

$1,400 00 

2 

1,500 00 

4 

2,000 00 

1 

1,200 00 

2 

1,200 00 

2 

1,500 00 

1 

2,500 00 

1 

1,800 00 

1 

1,500 00 

1 

2,400 00 

2 

1,800 00 

1 

1,200 00 

1 

1,125 00 

1 

3,000 00 

2 

3,500 00 

1 

2,800 00 

1 

3,000 00 

1 

2,400 00 

1 

3,000 00 

1 

1,500 00 

1 

2,000 00 

1 28 cents per hou r 

1 

$420 0() 

2 

600 Oo 

3 

624 0() 

2 

750 Oo 

1 

780 Oo 

2 

000 Oo 

1 

1,000 Oo 

1 

1,200 Oo 

2 

1,000 00 

1 

1,200 00 

1 

1,650 00 

1 

1,800 00 

1 

2,000 00 

2 

3,000 00 

1 

4,200 00 

1 

780 00 

1 

2,500 00 

1 

660 00 

1 

1,750 00 


Attendants. 

Attendant. 

Attendant, hospital, 
Attendant, hospital 

Cook. 

Cook. 

Cooks. 

Cook. 

Cooks. 


INSTITUTIONAL SERVICE 


17 

1 

1 

1 

1 

1 

2 

1 

2 


Vacant 
$120 00 
360 00 
240 00 
288 00 
360 00 
420 00 
480 00 





























































88 


Report of Senate Committee on Civil Service 


Institutional-Service'— [Continued 
TITLE Number 


Cooks. 

Cook. 

Cook. 

Farmer. 

Farmer... 

Farmer. 

Gardener. 

Housekeeper. 

Housekeeper. 

Laundress. 

Laundress. 

Laundress. 

Laundresses. 

Laundress. 

Laundress. 

Laundresses. 

Laundress, head. 

Laundrymen. 

Laundryman. 

Launderer. 

Matron. 

Matron. 

Matron. 

Matron. 

Matron. 

Matrons. 

Matrons. 

Matrons. 

Matrons. 

Matrons. 

Matrons. 

Matron. 

Matron. 

Matron. 

Matrons. 

Matron. 

Matrons. 

Matron. 

Matron at almshouse. 

Matron at children’s home. 

Matron, assistant. 

Matron, assistant. 

Matrons, assistant. 

Matron, assistant. 

Matron, assistant. 

Matron, second assistant to 

Matron of jail. 

Matrons of jail. 

Matron, nursery. 

Matron, penitentiary. 

Matron, penitentiary. 

Organist. 

Overseer. 

Overseer. 

Overseer, outside. 

Seamstress. 

Storekeeper. 


2 

1 

1 

1 

1 

1 

1 

1 

1 

1 

1 

1 

3 
1 
1 
2 
1 
2 
1 
1 
1 
1 
1 
1 
1 
2 
2 

4 

3 
2 
6 
1 
1 
1 
2 
1 
2 
1 
1 
1 
1 
1 
2 
1 
1 
1 
1 

4 
1 
1 
1 
1 
1 
1 
1 
1 
1 


JUDICIAL SERVICE 


Judge. 1 

Judges. 2 

Judge. I 


Salary 

$540 00 
720 00 
1.020 00 
480 00 
720 00 
900 00 
360 00 
300 00 
435 00 
240 00 
$1 50 per day 
$300 00 
360 00 
480 00 
540 00 
Vacant 
Vacant 
$600 00 
780 00 
900 00 
240 00 
300 00 
360 00 
400 00 
410 00 
420 00 
480 CO 
500 00 
575 00 
$2 00 per day 
$600 00 
650 00 
660 00 
750 00 
800 00 
850 00 
900 00 
1,000 00 
800 00 
855 00 
216 00 
300 00 
360 00 
450 00 
540 00 
300 00 
600 00 
1,000 00 
650 00 
420 00 
600 00 
50 00 
500 00 
1,200 00 
900 00 
300 00 
1,500 00 


2,000 00 
3,000 00 
3,500 00 






























































Standardization of Public Employments 89 


Judicial Service — Continued 


TITLE Number 

Judges. 3 

Judge. 1 

Judge. 1 

Judges. 2 

Judges. 2 

Judges. 5 

Judges. 7 

Judge, special. 1 

Judge, special. 1 

Judge, special.. 1 

Judge and surrogate. 1 

Judge and surrogate. 1 

Surrogate. 1 

Surrogate. 1 

Surrogates. 2 

Surrogate. 1 

Surrogate. 1 

Surrogates. 4 

Surrogate. 1 

Surrogates. 3 

Surrogates. 3 

Surrogate, special. 1 

Surrogate, special. 1 

LABOR SERVICE 

Bridge tenders. 5 

Caretaker. 1 

Laborer, farm and watchman. 1 

Morgue attendants. 2 

Morgue keepers. 3 

Orderlies. 2 

Orderly. 1 

Orderly. 1 

Orderly. 1 

Orderlies. 6 

Orderlies. 6 

Orderly. 1 

Orderlies. 5 

Van driver. 1 

Watchman. 1 

Watchmen. 3 

Watchman. 1 

Watchmen. 6 

Watchman. 1 

Watchman. 1 

Watchman and caretaker. 1 

Watchman, day. 1 

Watchman, night. 1 

Watchman, night. 

Watchman, night. 1 

Watchman, night. 1 

Watchman, night. 1 

Watchmen, night, penitentiary. 2 

Watchman, night. 1 

LEGAL SERVICE 

Assistant, court of record. 1 

Attorney, county. 1 

Attorneys, county. 3 

Attorney, county. 1 

Attorneys, county. 2 

Attorney, county. 1 


S alary 

$5,000 00 
6,000 00 
7,000 00 

7.500 00 
10,000 00 

12.500 00 

17.500 00 
300 00 
400 00 

1,000 00 
5,000 00 
10,000 00 
2,000 00 

2.500 00 
3,000 00 

3.500 00 
4,000 00 
5,000 00 

7.500 00 
10,000 00 
15,000 00 

400 00 
600 0 0 


780 00 
420 00 
730 00 
900 00 
$3 50 per day 
$300 00 
360 00 
420 00 
480 00 
540 00 
600 00 
720 00 
Vacant 
900 00 
540 00 
720 00 
750 00 
900 00 
1,200 00 
Vacant 
$840 00 
900 00 
480 00 
600 00 
780 00 
1,100 00 
1,200 00 
900 00 
600 00 


$4 00 per day 
$1,500 00 

2.500 00 
3,000 00 

3.500 00 
3,600 00 




























































90 


Report of 


Senate 


Committee on 


Civil Service 


Legal Service — Continued 

TITLE 

Attorney, county. 

Attorney, county, deputy. 

Attorney, district. 

Attorneys, district. 

Attorneys, district. 

Attorney, district. 

Attorney, district. 

Attorney, district. 

Attorney, district.•.. 

Attorneys, district. 

Attorney, district. 

Attorney, district. 

Attorney, district. 

Attorneys, district. 

Attorney, district. 

Attorney, district, assistant. 

Attorney, district, assistant. 

Attorneys, district, assistant. 

Attorney, district, assistant. 

Attorneys, district, assistant.%. 

Attorney, district, assistant.. 

Attorneys, district, assistant. 

Attorney, district, assistant. 

Attorney, district, assistant. 

Attorney, district, assistant. 

Attorney, district, assistant. 

Attorney, district, assistant. 

Attorneys, district, assistant. 

Attorney, district, assistant. 

Attorney, district, assistant. 

Attorneys, district, assistant. 

Attorneys, district, assistant. 

Attorneys, district, assistant. 

Attorneys, district, assistant. 

Attorney, district, assistant. 

Attorneys, district, assistant. 

Attorney, district, assistant, deputy. 

Attorneys, district, assistant, deputy. 

Attorneys, district, assistant, deputy. 

Attorney, district, assistant, deputy. 

Attorneys, district, assistant, deputy. 

Attorneys, district, assistant, deputy. 

Attorney, district, assistant, deputy. 

Attorneys, district, assistant, deputy. 

Counsel. 

Counsel.;. 

Counsel. 

Counsel. 

Counsels. 

Counsels. 

Counsel. 

Counsel. 

Counsel. 

Counsel, assistant. 

Law assistant to surrogate. 

Law assistant to surrogate. 

Law assistant to surrogate. 

Law assistant to surrogate. 

Law assistant to surrogate.. 

Public administrator. 

Public administrator. 

Public administrator. 

Public administrator, assistant. 


Number 

1 

1 

1 

4 
2 
1 
1 
1 
1 
2 
1 
1 
1 
2 
1 
1 
1 
3 
1 

5 
1 
5 
1 
1 
1 
5 
1 
9 
1 
1 
3 

5 

6 
3 
1 

13 

1 

7 

3 
1 

4 
10 

1 

2 

1 

1 

1 

1 

11 

11 

1 

1 

1 

1 

1 

1 

1 

1 

1 

1 

1 

1 

1 


Salary 
$4,000 00 
1,750 00 
1,200 00 

2.500 00 
3,000 00 

3.200 00 

3.700 00 
4,000 00 

4.500 00 
5,000 00 

7.500 00 
8,000 00 

8.500 00 
10,000 00 
15,000 00 

900 00 
1,000 00 

1.200 00 

1.500 00 
1,800 00 
1,900 00 
2,000 00 

2.150 00 
2,250 00 
2,350 00 

2.500 00 

2.700 00 
3,000 00 

3.150 00 

3.500 00 
4,000 00 

4.500 00 
5,000 00 
6,000 00 
7,000 00 

7.500 00 
1,800 00 
2,000 00 

2.500 00 
3,000 00 

3.500 00 
4,000 00 

4.500 00 
5,000 00 

500 00 
1,200 00 
2,000 00 

2.500 00 
3,000 00 

3.500 00 
4,000 00 
5,000 00 
6,000 00 
3,000 00 
3,000 00 
4,000 00 

4.500 00 

5.500 00 
6,000 00 
4,000 00 
5,000 00 

10,000 00 
5,000 00 

































































91 


Standai:dization of 


Public 


Employments 


MANAGERIAL 


TITLE Number 

Auditor. 1 

Auditor, deputy. 1 

Commissioners of elections. 2 

Commissioners of elections. 4 

Commissioners of elections. fi 

Commissioners of elections. 4 

Commissioners of elections. 4 

Commissioners of elections. 4 

Commissioners of elections. 4 

Commissioner of elections. 1 

Commissioners of jurors. 3 

Commissioner of jurors. 1 

Commissioner of jurors. 1 

Commissioner of jurors. 1 

Commissioner of jurors. 1 

Commissioner of jurors. 1 

Commissioners of jurors. 3 

Commissioner of jurors, assistant. 1 

Commissioner of jurors, assistant. 1 

Commissioner of jurors, assistant. 1 

Commissioners of jurors, assistant. 2 

Commissioners of jurors. 2 

Commissioner of jurors, deputy. 1 

Commissioner of records. 1 

Commissioner of records.. 1 

Commissioner of records, surrogate’s court. 1 

Commissioners of records, deputy. 3 

Comptroller. 1 

Comptroller. 1 

Comptroller. 1 

Comptroller, deputy . . . .. 1 

County clerk. 1 

County clerk. 1 

County clerk. 1 

County clerk. 1 

County clerks. 2 

County clerk. 1 

County clerks. 3 

County clerk. 1 

County clerks. 3 

County clerk. 1 

County clerk. 1 

County clerk and register. 1 

County clerk and registrar. 1 

County clerks, deputy. 2 

County clerk, deputy. 1 

County clerks, deputy. 4 

County clerk, deputy. 1 

County clerk, deputy. 1 

County clerks, deputy. 2 

County clerk, deputy. 1 

County clerk, deputy. 1 

County clerk, deputy.'. 1 

County clerk, deputy. 1 

County clerk, deputy. 

Register. 

Register. 1 

Registers. 2 

Register, deputy. 1 

Registers, deputy. . 2 


Salary 

$4,000 00 

2.500 00 
600 00 

1,000 00 
1,200 00 

1.500 00 
1,800 00 
2,000 00 
3,000 00 

3.500 00 

1.500 00 
2,000 00 

2.500 00 

3.500 00 
4,000 00 

4.500 00 
6,000 00 
1,100 00 
1,200 00 

2.500 00 
3,000 00 

3.500 00 

2.400 00 
5,000 00 

7.500 00 
5,000 00 
4,000 00 

2.500 00 

3.500 00 
6,000 00 
4,000 00 

Fees 

$2,000 00 
3,000 00 

3.500 00 
4,000 00 

4.500 00 
5,000 00 
8,000 00 

10,000 00 
12,000 00 
15,000 00 

3.400 00 
4,300 00 
1,200 00 

1.500 00 
1,800 00 
2,000 00 
2,250 00 

2.500 00 
3,000 00 
4,000 00 

4.500 00 
5,000 00 
6,000 00 

Fees 

$10,000 00 
12,000 00 
4,000 00 
5,000 00 






























































02 Report of Senate Committee on Civil Service 


Managerial — Continued 


TITLE Number 

Register, mortgage tax deputy. 

Treasurer. 

Treasurer. 

Treasurer. 

Treasurer. 

Treasurer. 1 

Treasurers. 2 

Treasurers. 2 

Treasurers. 2 

Treasurer. 

Treasurers, deputy.... 2 

Treasurer, deputy. 

Treasurer, deputy .. 1 

Treasurers, deputy. 2 

Treasurer, deputy. 1 

MISCELLANEOUS 

Superintendent, city hall. 

Superintendent of buildings.. 

Superintendent, county buildings. 1 

Superintendent, court house. 1 

Superintendents, court house. 2 

Superintendent, court house, assistant to. 1 

Superintendent, city hall, assistant. 1 

Superintendent, soldiers’ burial. 1 

Superintendent, soldiers’ burial. 1 

Burial agent for deceased soldiers. 1 

Morgue keepers. 3 

Morgue attendant. 1 

Manager Bronx valley sanitary sewer. 1 

Steward.:. 1 

RELIGIOUS, CHARITABLE AND PENAL 

Chaplain. 1 

Chaplains. 3 

Chaplain. 1 

Chaplains. 2 

Chaplains. 4 

Chaplains. 4 

Chaplains. 2 

Chaplains. 2 

Chaplains. 2 

Commissioner of charities and correction. 1 

Commissioner of charities and correction, deputy. 1 

Community welfare agent. 1 

Investigator. 1 

Investigators. 2 

Investigator. 1 

Investigator. 1 

Keeper. 1 

Keeper and chief engineer. 1 

Matron. 1 

Matron. 1 

Matron. 1 

Matron. 1 

Matrons. 6 

Matrons. 2 

Matrons. 6 

Matrons. 3 

Matrons. 8 

Matron. 1 


Salary 

$2,300 0° 

1.500 0° 
2,000 00 

2.500 00 
3,000 00 

3.500 00 
4,000 00 

4.500 00 
5,000 00 

10,000 00 
2,000 00 
2,250 00 

2.500 00 
3,000 00 
4,000 00 


1,800 00 
2,500 00 
1,200 00 
1,750 00 
2,000 00 
900 00 
1,050 00 
60 00 
400 00 
150 00 
$3 50 per day 
$900 00 
2,500 00 
1,100 00 


25 00 
75 00 
80 00 
100 00 
150 00 
200 00 
350 00 
400 00 
500 00 
5,000 00 
900 00 
900 00 
300 00 
600 00 
900 00 
1,200 00 
2,000 00 
500 00 
240 00 
330 00 
360 00 
410 00 
420 00 
480 00 
500 00 
575 00 
600 00 
650 Oo 



























































Standardization of Public Employments 93 

Religious, Charitable and Penal —Continved 
TITLE Number Salary 

Matron. 1 $660 00 

Matron. 1 750 00 

Matrons. 2 800 00 

Matrons. 2 850 00 

Matron. 1 855 00 

Matrons. 2 900 00 

Matrons. 4 1,000 00 

Matron, assistant. 1 216 00 

Matrons, assistant. 2 300 00 

Matrons, assistant. 2 360 00 

Matron, assistant. 1 450 00 

Matron, assistant. 1 500 00 

Matron, assistant. 1 540 00 

Matron, nursery. 1 650 00 

Overseer. 1 1,200 00 

Secretary, child welfare board. 1 400 00 

Secretary, child welfare board. 1 1,000 00 

Secretary, child welfare board. 1 1,200 00 

Secretary, child welfare board. 1 1,500 00 

Secretaries, child welfare board. 141 No salary stated 

Superintendent of almshouse. 1 S3,500 00 

Superintendent, city and town home. 1 1,800 00 

Superintendents, county home. 2 2,500 00 

Superintendent, county lodging house. 1 2,050 00 

Superintendent, farm. 1 600 00 

Superintendents, penitentiary. 2 2,500 00 

Superintendent, penitentiary. 1 3,000 00 

Superintendents, poor. 2 500 00 

Superintendents, poor. 2 1,200 00 

Superintendents, poor. 3 1,500 00 

Superintendent, poor. 1 1,800 00 

Superintendent, poor. 1 2,000 00 

Superintendent, poor. 1 2,400 00 

Superintendent, poor. 1 2,500 00 

Superintendent, poor. 1 3,500 00 

Superintendent, poor. 1 4,000 00 

Superintendent, woman’s building. 1 300 00 

Superintendent, almshouse, deputy. ' 1 1,800 00 

Superintendent, county home and hospital, deputy. 1 1,800 00 

Superintendents, penitentiary, deputy. 2 1,400 00 

Superintendent, penitentiary, deputy. 1 1,500 00 

Superintendent, poor, deputy. 1 1,200 00 

Superintendent, poor, deputy... 1 1,320 00 

Superintendent, poor, deputy. 1 1,800 00 

Superintendent, placing dependent children. 1 1,720 00 

PROFESSIONAL AND SCIENTIFIC SERVICE 
MEDICAL GROUP 

Assistant, clinical. 1 Salary not stated 

Assistant, medical. 1 $5,000 00 

Bacteriologist. 1 1,000 00 

Coroners. 4 1,200 00 

Coroners. 2 2,000 00 

Internes.:. 2 Vacancies 

Internes. 5 $180 00 

Interne. 1 900 00 

Interne, junior. 1 300 00 

Interne, senior. 1 600 00 

Necrotomist. 1 1,500 00 

Nurses. 19 360 00 

Nurses. 8 420 00 




























































94 


Report of Senate Committee on Civie Service 


Professional and Scientific Service Medical Group — Continved 


TITLE 

Nurses. 

Nurses. 

Nurses. 

Nurse. 

Nurse, chief. 

Nurses, chief. 

Nurse, assistant chief. 

Nurse, head. 

Nurses, head. 

Nurse, head. 

Nurses, head. 

Nurse, hospital. 

Nurses, pupil. 

Nurses, superintendent of. 

Nurses, superintendent of. 

Nurses, superintendents of. 

Nurses, superintendents of. 

Nurses, superintendents of. 

Nurses, superintendents of. 

Nurses, assistant superintendent of. 

Nurses, assistant superintendent of. 

Nurses, night superintendent of. 

Pharmacist. 

Pharmacist. 

Physician. 

Physicians. 

Physicians. 

Physician. 

Physician. 

Physician. 

Physician. 

Physicians. 

Physician. 

Physician. 

Physician. 

Physician. 

Physicians, city. 

Physician, city. 

Physicians, coroner’s. 

Physicians, coroner’s. 

Physicians, coroner’s. 

Physician, county. 

Physician, county. 

Physicians, deputy county. 

Physicians, jail. 

Physician, jail. 

Physician, jail. 

Physician, jail. 

Physician, resident. 

Physician, resident. 

Physician, assistant, resident. 

Physician and surgeon. 

Physician and surgeon. 

Superintendent, hospital.. 

Superintendent, medical. 

Superintendent, resident medical. 

Superintendent, tuberculosis sanitarium. 
Superintendent, tuberculosis sanitarium. 
Superintendent, Lakeview sanitarium. . . 


Number 

10 

15 

11 

1 

1 

2 

1 

1 

2 

1 

4 
1 

43 No 
1 
1 
2 

3 
2 
2 
1 
1 
1 
1 
1 
1 
2 
2 
1 
1 
1 

1 

o 

Lj 

1 

1 

1 

1 

5 
1 
2 
9 

Li 

4 
1 
1 

2 

9 

Li 

1 

1 

1 

1 

1 

1 

1 

1 

1 

1 

1 

1 

1 

1 


Salary 

$480 00 
540 00 
600 00 
660 00 
840 00 
900 00 
600 00 
480 00 
720 00 
780 00 
900 00 
480 00 
alary stated 
$660 00 
900 00 
1,000 00 
1,200 00 

1.500 00 
1,800 00 

420 00 
650 00 
700 00 
600 00 
1,300 00 
240 00 
300 00 
400. 00 
460 00 
500 00 
600 00 
720 00 
900 00 
1,000 00 
1,200 00 
2,000 00 
2,400 00 
200 00 
1,000 00 
150 00 
500 00 
Fees 
$1,400 00 
3,000 00 

2.500 00 
100 00 
225 00 
300 00 
800 00 
200 00 

1.500 00 
900 00 
750 00 

1,000 00 

2.500 00 
2,250 00 
1,200 00 
1,200 00 
2,500 00 
2,000 00 





























































Standardization of Public Employments 


95 


ENGINEERING GROUP 

TITLE 

Architect and adviser, supervising. 

Draftsmen. 

Draftsmen. 

Engineer, assistant, civil. 

Engineer, first assistant. 

Engineer, county. 

Engineer, county. 

Engineer, principal assistant. 

Leveler. 

Levelers. 

Leveler. 

Leveler. 

Superintendent, highways*. 

Superintendent, highways*. 

Superintendents, highways*. 

Superintendents, highways*. 

Superintendent, highways*. 

Superintendents, highways*. 

Superintendent, highways. 

Superintendents, highways*. 

Superintendent, highways*. 

Superintendents, highways*. 

Superintendents, highways*. 

Superintendents, highways*. 

Superintendents, highways*.^. 

Superintendent, highways*... 

Superintendents, highways*. 

Superintendent, maintenance and construction. 

Surveyor, chief and draftsman. 

Surveyor, assistant, surveyor and draftsman. 

Tracer.. 


Examiner. 

Examiner, mortgage tax. 

Investigator. 

Investigator. 

Investigator, special (alien poor) 


INSPECTIONAL SERVICE 


Agents, county. 

Agents, county. 

Agents (children’s). 

Inspectors. 

Inspectors. 

Inspector. 

Inspector. 

Inspector (children’s department) 

Inspector, confidential. 

Inspector, construction. 

Inspectors, highway. 

Inspectors. 

Inspectors. 

Inspector. 

Inspector. 

Inspector. 

Inspector. 


>er 

Salary 

1 

$4,000 00 

9 

1,200 00 

2 

1,350 00 

1 

2,400 00 

1 

2,100 00 

1 

3,000 00 

1 

3,180 00 

1 

$8 00 per diem 

1 

$ 1,200 00 

2 

1,320 00 

1 

1,440 00 

1 

1,908 00 

1 

800 00 

1 

900 00 

11 

1,000 00 

8 

1,200 00 

1 

$3 00 per diem 

10 

$1,500 00 

1 

1,550 00 

3 

1,600 00 

1 

1,650 00 

2 

1,750 00 

5 

1,800 00 

4 

2,000 00 

2 

2,400 00 

1 

2,800 00 

3 

3,000 00 

1 

1,590 00 

1 

2,100 00 

1 

1,500 00 

1 

1,300 00 

OUP 

1 

$ 2,000 0 ° 

1 

2,000 0 ° 

1 

1,325 0° 

1 

1,500 00 

1 

1,080 00 

2 

$800 0° 

4 

1,000 oo 

5 

900 00 

3 

100 oo 

3 

$4 00 per diem 

1 

$1,400 00 

1 

$5 00 per diem 

1 

$1,025 00 

1 

1,800 00 

1 

$4 00 per diem 

2 

$ 1,200 00 

7 

$4 00 per diem 

2 

4 50 per diem 

1 

$1,236 00 

1 

1,320 00 

1 

1,500 00 

1 

1,590 00 


* Including counties in which entire service has not been classified. 
























































96 


Report of Senate Committee on Civil Service 


POLICE GROUP 


TITLE 

Attendant, court. 

Attendants, court. 

Custodian, deputy of penitentiary 

Detectives, county. 

Detectives, county. 

Detective, county. 

Detective, county. 

Detectives, county. 

Detectives, county. 

Detectives, county. 

Detectives, county. 

Detectives, county.. 

Detective, county. 

Detectives, county. 

Guards.. 

Guards. 

Guards. 

Guards. 

Jailers. 

Jailer. 

Jailer. 

Jailers. 

Jailer. 

Jailer, assistant. 

Jailers, deputy. 

Keeper. 

Keepers. 

Keeper. 

Keeper. 

Keeper. 

Keeper. 

Keepers. 

Keepers. 

Keepers. 

Keepers. 

Keeper. 

Keeper. 

Keeper, assistant. 

Keeper, hall. 

Keeper, head. 

Keeper, head. 

Keepers, penitentiary. 

Keepers, penitentiary. 

Keepers, penitentiary. 

Keepers, penitentiary. 

Keepers, penitentiary. 

Officers. 

Officers. 

Officers, court.. 

Officers, court. 

Officer, court. 

Officer, court. 

Officers, court. 

Officer, court. 

Officers, court. 

Officer, chief court. 

Officer, probation. 

Officers, probation. 

Officers, probation. 

Officers, probation. 


Number 

Salary 

1 

$900 00 

14 

1,020 00 

1 

2,200 00 

4 

900 00 

3 

1,000 00 

1 

1,200 00 

1 

1,300 00 

2 

1,350 00 

5 

1,500 00 

4 

1,800 00 

4 

2,000 00 

4 

3,000 00 

1 Salary not stated 

2 

$2 50 per day 

2 

2 50 per day 

4 

3 00 per day 

2 

$1,000 00 

6 

1,200 00 

4 

600 00 

1 

780 00 

1 

800 00 

8 

900 00 

1 

1,600 00 

1 

840 00 

6 

150 00 

1 

600 00 

6 

630 00 

1 

660 00 

1 

675 00 

1 

714 00 

1 

800 00 

22 

840 00 

4 

900 00 

11 

1,000 00 

8 

1,200 00 

1 

1,400 00 

1 

1,500 00 

1 

600 00 

1 

1,200 00 

1 

1,500 00 

1 

2,000 00 

13 

900 00 

13 

1,000 00 

8 

1,050 00 

4 

1,100 00 

10 

1,200 00 

2 

1,000 00 

2 

1,400 00 

8 

600 00 

2 

$3 00 per diem 

1 

$1,200 00 

1 

1,300 00 

2 

1,350 00 

1 

1,500 00 

4 

1,800 00 

1 

2,300 00 

1 

300 00 

2 

600 00 

2 

840 00 

* o 
& 

1,200 00 






























































Standardization 


Police 

TITLE 

Officer, probation. 

Officer, probation. 

Officer, assistant probation. 

Officers, assistant probation. 

Officers, assistant probation. 

Officer, chief probation. 

Overseer. 

Overseer. 

Sheriff. 

Sheriff. 

Sheriff. 

Sheriffs. 

Sheriffs. 

Sheriffs. 

Sheriffs. 

Sheriff. 

Sheriff. 

Sheriff, deputy. 

Sheriff, deputy. 

Sheriffs, deputy. 

Sheriffs, deputy. 

Sheriffs, deputy. 

Sheriffs, deputy. 

Sheriffs, deputy. 

Sheriff, deputy. 

Sheriffs, deputy. 

Sheriffs, deputy. 

Sheriffs, deputy. 

Sheriffs, deputy. 

Sheriffs, deputy. 

Sheriffs, deputy. 

Sheriffs, deputy. 

Sheriffs, assistant deputy. 

Sheriffs, assistant deputy. 

Sheriffs, assistant deputy. 

Deputies, criminal. 

Deputy, court. 

Deputy, special. 

Sheriff, deputy and jailer. 

Sheriff, deputy and jailer. 

Sheriff, deputy and jailer. 

Sheriffs, deputy and jailers. 

Sheriff, assistant.. 

Sheriff, under.. 

Sheriffs, under. 

Sheriff, under. 

Sheriff, under. 

Sheriffs, under. 

Sheriffs, under. 

Sheriffs, under. 

Sheriff, under. 

Sheriffs, under. 

Sheriff, second under. 

Turnkey. 

Warden. 

Warden. 

Wardens. 

Warden. 

Warden. 

Warden. 

Wardens, assistant. 




Group — Continued 


AMENTS 97 

imber 

Salary 

1 

$1,500 00 

1 

2,500 00 

1 

1,000 00 

2 

1,100 00 

3 

1,400 00 

1 

1,500 00 

1 

500 00 

1 

900 00 

1 

2,000 00 

1 

2,500 00 

1 

3,500 00 

5 

4,000 00 

2 

5,000 00 

2 

6,000 00 

3 

10,000 00 

1 

12,000 00 

1 

15,000 00 

1 

750 00 

1 

$3 00 per day 

3 

$900 00 

12 

1,000 00 

2 

1,100 00 

25 

$4 00 per day 

12 

$1,200 00 

1 

1,300 00 

28 

1,350 00 

3 

1,400 00 

7 

1,500 00 

2 

1,800 00 

5 

2,000 00 

7 

2,200 00 

23 

2,500 00 

15 

1,500 00 

8 

1,000 00 

5 

900 00 

2 

1,200 00 

1 

1,000 00 

1 

780 00 

1 

780 00 

1 

1,000 00 

1 

1,100 00 

3 

1,200 00 

1 

1,100 00 

1 

1,200 00 

2 

1,400 00 

1 

1,500 00 

1 

1,750 00 

3 

1,800 00 

2 

2,500 00 

2 

3,000 00 

1 

5,000 00 

2 

6,000 00 

1 

1,800 00 

1 

1,100 00 

1 

600 00 

1 

1,080 00 

3 

1,200 00 

1 

1,800 00 

1 

2,000 00 

1 

3,000 00 

2 

1,200 00 
































































98 


Report of Senate Committee on Civil Service 


Police Group — Continued 


TITLE Number 

Warden, first assistant. 1 

Warden to grand jury. 1 

Warden to grand jury. 1 

Warden to grand jury. 1 


Salary 

$1,500 00 
2,000 00 

3.500 00 

1.500 00 


SKILLED LABOR SERVICE 

Baker. 

Baker. 

Bakers. 

Baker.■.. 

Bookbinders. 

Bookbinders. 

Bookbinders. 

Bookbinder. 

Bookbinder. 

Bookbinders. 

Bookbinder, chief. 

Bookbinder, foreman. 

Butcher. 

Cabinet repairer. 

Carpenter. 

Carpenter. 

Carpenter. 

Carpenter... 

Carpenter. 

Carpenter and plumber. 

Chauffeur. 

Chauffeur. 

Chauffeur. 

Chauffeur. 

Chauffeur. 

Chauffeur. 

Cook. 

Cook. 

Cook. 

Cook, assistant. 

Cook, chief.. 

Electrician. 

Elevatorman. 

Elevatorman. 

Elevator conductors. 

Elevator conductors. 

Elevator conductors. 

Elevatorman and watchman. 

Engineer. 

Engineer. 

Engineer. 

Engineers. 

Engineer. 

Engineers.. 

Engineer. 

Engineer.. 

Engineers. 

Engineer. 

Engineers. 

Engineer. 

Engineers, assistant. 

Engineers, assistant. 


1 $360 00 

1 480 00 

3 600 00 

1 Vacancy 

2 $3 00 per day 

3 $23 00 per week 

3 $1,000 00 

1 1,050 00 

1 $4 00 per day 

15 $1,200 00 

1 1,20000 

1 1,500 00 

1 900 00 

1 1,140 00 

1 500 00 

1 540 00 

1 600 00 

1 1,020 00 

1 Vacancy 

1 Vacancy 

1 $480 00 

1 720 00 

1 780 00 

1 $21 00 per week 
1 $1,200 00 

1 Vacancy 

1 $600 00 

1 780 00 

1 840 00 

1 Vacancy 

1 Vacancy 

1 $1,320 00 

1 1,000 00 

1 1,050 00 

4 600 00 

4 720 00 

3 780 00 

1 720 00 

1 400 00 

1 500 00 

1 660 00 

2 900 00 

1 948 00 

6 960 00 

1 1,000 00 

1 1,050 00 

2 1,080 00 

1 1,14000 

3 $4 00 per dav 

1 $1,200 00 

1 2,000 00 

3 960 00 

2 1,020 00 


























































Standardization of Public Employments 


99 


.Skilled Labor 

TITLE 

Engineer, assistant. 

Engineers, assistant. 

Engineer, assistant. 

Engineers, assistant. 

Engineer, assistant. 

Engineers, assistant. 

Engineer, assistant and fireman. 

Engineer, first assistant. 

Engineer, first assistant. 

Engineer, second assistant. 

Engineer, second assistant. 

Engineer, second assistant. 

Engineers, assistant steam. 

Engineer, chief. 

Engineer, chief. 

Engineer, chief. 

Engineers, chief. 

Engineer, chief. 

Engineer, chief and electrician. 

Engineers and firemen. 

Farm foreman. 

Firemen. 

Firemen. 

Firemen. 

Fireman. 

Fireman. 

Firemen. 

Firemen. 

Firemen. 

Firemen. 

Firemen. 

Firemen. 

Fireman and night watchman. 

Firemen and process servers. 

Foreman. 

Foreman. 

Foremen (highways). 

Foreman (highways). 

Foreman of laborers. 

Foreman of laborers. 

Jani tress. 

Janitress.. 

Janitor. 

Janitor. 

Janitor. 

Janitors. 

Janitor. 

Janitors. 

Janitors. 

Janitor. 

Janitor. 

Janitors. 

Janitors. 

Janitor. 

Janitor. 

Janitor, assistant. 

Janitors, assistant. 

Janitor of county buildings. 

Janitor, day. 

Janitor, night and engineman. 


Service — Continued 

Number 

. 1 

. 2 

. 3 

. 3 

. 1 

. 3 

. 1 

. 1 

. 1 

. 1 

. 1 

. 1 

. 4 

. 1 

. 1 

. 1 

. 2 

. 1 

. 1 

. 2 

. 1 

. 3 

. 5 

. 3 

. 1 

. 1 

. 2 

. 3 

. 4 

. 3 

. 3 

. 3 

. 1 

. 3 

. 1 

. 1 

. 7 

. 1 

. 1 

. 1 

. 1 

. 1 

. I 

. I 

1 

. 2 

. 1 

. 2 

. 10 

. 1 

. 1 

. 7 


1 

1 

1 

3 

1 

1 

1 


Salary 

$1,200 00 
$4 00 per day 
$1,350 00 
1,460 00 
$4 50 per day 
$21 00 per week 
$900 00 
900 00 
720 00 
720 00 
900 00 
1,020 00 
720 00 
1,080 00 
1,200 00 
$4 50 per day 
$1,320 00 
1,642 50 
1,700 00 
1,000 00 
Vacancy 
$480 00 
600 00 
720 00 
744 00 
780 00 
840 00 
$3 00 per day 
$900 00 
$18 00 per week 
$1,014 00 
1,095 00 
$2 25 per day 
$900 00 
960 00 
$21 00 per week 
$900 00 
1,200 00 
1,080 00 
1,350 00 
300 00 
360 00 
200 00 
300 00 
$30 per month 
$360 00 
400 00 
600 00 
720 00 
780 00 
792 00 
840 00 
900 00 
1,200 00 
1,700 00 
900 00 
960 00 
1,080 00 
600 00 
600 00 






























































100 Report of Senate Committee on Civil Service 


Skilled Labor Service — Continved 


TITLE Number 

Janitors and process servers. 2 

Machinist. 1 

Machinist, general. 1 

Operator. 1 

Painters. 2 

Superintendent, quarry. 1 

Tailor. 1 


Salary 

$720 00 
1,080 00 
1,020 00 
1,200 00 
1,250 00 
1,080 00 
$4 00 per day 









TABLE II 

County Clerk’s Offices 


Standardization of Public Employments 


101 


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Table II — ( Continued ) 
County Courts 


102 Report of Senate Committee on Civil Service 


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Table II — ( Continued ) 
District Attorney 


104 Report of Senate Committee on Civil Service 


o fc 

§ o 

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o 5 

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Salaries 

$7,341 70 

14,344 10 

5,340 90 

68.721 10 

7,655 10 

17,162 40 

19,478 00 

7,211 53 

5,269 40 

4,486 00 

9,586 90 

9,173 50 

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Table II — ( Continued ) 


rAXDARDIZATION OF PUBLIC EMPLOYMENTS 


105 




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Table II — ( Continued ) 
Sheriffs 


106 Report of Senate Committee on Civil Service 


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Table II — ( Continued ) 
Surrogates 


107 


Standardization of Public Employee 


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108 Report of Senate Committee on Civil Service 


32 

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Standardization of Public Employments 


100 


TABLE III 

Table Showing the Appointments in Sheriffs Offices Under 
the Flaherty Decision by Title and by Year 



1909 

Assistant equity clerk. 

1 

Bookkeeper. 

1 

Supreme court attendant. 

6 

Court attendant. 

10 

Italian interpreter and attendant. 
Italian interpreter. 

1 

2 

Clerk. 

1 

Deputy clerk. 

1 

Commissary. 

1 

Messenger. 

2 

Auditor. 

1 

Entry clerk. 

1 

Law clerk. 

1 

Index clerk. 

1 


Bookkeeper acting as cashier 
Assistant auditor. 


Cashier. 


General utility man. 


Finger print expert. 


Finger print clerk. 


Accountant. 

.... 

Assistant counsel. 

Arrest clerk. 


Assistant entry clerk. 


Clerk to sheriff. 


Sheriff’s clerk. 


Process server. 


Clerk and typewriter. 


Assistant clerk. 


Chief clerk. 


Stenographer. 


Janitor and process server. 

Civil clerk. 

.... 

Assistant cashier. 

Clerk—typewriter copyist. 

Fireman and process server. 

Confidential stenographer aad 
typewriter. 

* • * • 

Civil clerk and typewriter copyist 

.... 


1910 

1911 

1912 

1913 

1914 

1915 

1 

1 

1 

1 

1 

1 

1 

1 

1 

1 

• 

1 

1 

V'i 

’ ' 2 


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9 

1 

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1 

1 

1 

1 

1 

1 

1 

1 

1 

3 

3 

2 

4 

4 

4 

1 

1 





2 

2 

1 

2 

2 

2 

1 

1 

1 

2 

2 

1 

1 

1 


1 

1 

1 

1 

1 





1 

1 

1 

1 

1 

1 

1 

1 





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1 

1 

1 



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1 

1 

1 

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1 

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1 

1 

1 

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1 

1 

1 

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1 

1 

1 

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1 






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.... 

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1 

6 

3 

3 



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1 

1 

1 




2 

2 

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1 1 

1 




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2 

2 




1 

1 





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1 

1 





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3 

3 





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1 


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1 
















































































































110 Report of Senate Committee on Civil Service 


TABLE IV 


Table Showing the Exempt Positions and the Clerical 
Service in the Competitive Class in State Courts, With 


the Salaries Attached Thereto. 


TITLE 

Attendant. 

Attendants. 

Attendant. .. 

Attendant.•. 

Attendants. 

Chief court attendant. 

Confidential attendant. 

Confidential attendant. 

Confidential attendants. 

Confidential attendant. 

Consultation attendant. 

Consultation attendants. 

Attendants acting as stenographer. 

Attendants to justice. 

Chief attendant. 

Chief court attendant. 

Court attendant and telephone operator 

Attendant and crier. 

Clerk. 

Clerk. 

Clerk. 

Clerk. 

Clerk. 

Clerk. 

Clerk. 

Clerk. 

Clerk. 

Clerk. 

Clerk and stenographer. 

Assistant clerk. 

Assistant clerk. 


Clerk, case and consultation. 1 

Clerk, certificate. 1 

Clerk, chancery. i 

Clerk, chief. 1 

Clerk, confidential. 1 

Clerk, confidential. 

Clerk, consultation. 1 

Clerk, consultation. 1 

Clerk and stenographer. 1 

Clerks of court. 3 

Clerks of court. 3 

Clerk of court. 1 

Clerk, deputy. 

Clerk, deputy. 1 

Clerk, deputy. 1 


Clerk, special deputy 
Clerk, special deputy 
Clerk, special deputy 
Clerk, special deputy 
Clerk, special deputy 
Clerk, special deputy 


Exempt 


2 


1 

2 


1 

1 

2 

1 

1 

2 

2 

34 

1 


1 

1 


Rates 

$1,200 00 
1,500 00 
1,600 00 
1,800 00 
2,000 00 

Com¬ 

peti¬ 

tive 

1 

11 

7 

122 

18 

1,200 00 


1,500 00 


1,800 00 


3,000 00 


600 00 


1,800 00 


1,500 00 


1,800 00 


3,000 00 


1,800 00 

1 

1,300 00 


1,800 00 


1,000 00 

1 

1,200 00 

1 

1,500 00 

1 

1,800 00 

1 

2,000 00 

1 

2,100 00 

1 

2,500 00 

2 

3,000 00 

11 

3,500 00 

4 

4,000 00 

1 

1,500 00 

1 

2,000 00 

18 

3,000 00 

3 

3,500 00 


2,200 00 


2,200 00 


3,500 00 


4,000 00 


4,500 00 

2 

3,000 00 


3,500 00 


3,000 00 


3,000 00 


6,000 00 


2,200 00 


2,500 00 

1 

4,000 00 


5,000 00 


2,500 00 

21 

2,600 00 

1 

3,000 00 

1 

3,500 00 

2 

3,600 00 

2 

4,000 00 

6 









































































































Standardization of Public Employments 111 


Table IV — Concluded 


TITLE 

Clerk, assistant special deputy.. 
Clerk, assistant special deputy . . 
Clerk, deputy, and librarian.... 
Clerk, deputy, and stenographer 

Clerk, general. 

Clerk, assistant general. 

Clerk, law. 

Clerk, assistant law. 

Clerk, recording. 

Clerk, remittitur. 

Clerk to justice. 

Clerks to justice. 

Clerks to justice. 

Clerks to justice. 

Clerks to justice. 

Clerks to justice. 

Clerks to justice. 

Crier. 

Crier. 

Crier. 

Crier... 

Crier, chief. 

Custodian. 

Editor (associate). 

Interpreter. 

Interpreter. 

Interpreter. 

Interpreter. 

Interpreter. 

Librarian. 

Librarian. 

Messenger. 

Page. 

Page. 

Reporter. 

Reporter, deputy. 

Reporter, deputy. 

Reporter, assistant. 

Reporter, state. 

Reporter, deputy state. 

Secretary. 

Stenographer. 

Stenographer. 

Stenographer. 

Stenographer.*. 

Stenographers. 

Stenographers. 

Stenographer. 

Stenographer. 

Stenographer. 

Stenographers to justice. 

Telephone operators. 

Typewriter copyists. 

Chief engineer. 


Exempt 

Rates 

Com¬ 

peti¬ 

tive 


$2,000 00 

2 

1 

2,500 00 

46 


2,000 00 

1 

1 

2,500 00 


1 

5,000 00 



3,500 00 

1 

1 

3,000 00 


1 

2,000 00 



1,200 00 

1 

1 

3,000 00 


1 

1,000 00 


9 

1,200 00 


9 

1,500 00 


16 

1,800 00 


22 

2,500 00 


17. 

2,750 00 


24 

3,500 00 


1 

3,000 00 



1,500 00 

4 


1,800 00 

1 


2,000 00 

1 


1,800 00 

1 

i 

1,800 00 


1 

1,500 00 



1,500 00 

1 


1,600 00 

1 


2,000 00 

2 


2,500 00 

8 


2,750 00 

1 


2,500 00 

1 

1 

4,000 00 



1,200 00 

1 


360 00 

1 


420 00 

1 

1 

5,000 00 



2,000 00 

2 

1 

5,000 00 



2,000 00 

1 

1 

5,000 00 


1 

3,700 00 


1 

1,500 00 



360 00 

1 


600 00 

1 


900 00 

1 


1,000 00 

1 

2 

1,500 00 

1 

2 

1,800 00 



2,700 00 

2 


3,000 00 

1 


3,600 00 

80 

11 

1,800 00 


2 

1,200 00 


2 

1,500 00 

1 

1 

2,100 00 












































































































VILLAGES 
Clerical Service 
TABLE V 


TITLE Number 

Bookkeeper and clerk. 1 

Clerk. 1 

Clerk. 1 

Clerk. 1 

Clerk. 1 

Clerk, deputy. 1 

Clerks, police. 2 

Register of vital statistics. 1 

Secretary. . .. 

Secretary, assistant. 1 

Stenographer and assistant. 1 

ENGINEERING SERVICE 

Commissioner (street). 1 

Engineer. 1 

Engineer. 1 

Superintendent (water commissioner). 1 

Superintendent (water commissioner). 1 

Superintendent (street commissioner). 1 


Salary 

$840 00 
660 00 
1,200 00 
1,800 00 
2.000 00 
300 00 
2,250 00 
Fees 
$150 00 
200 00 
600 00 


$1,500 00 
$6 00 per day 
$3,000 00 
1,800 00 
1,900 00 
1,500 00 


INSPECTIONAL SERVICE 


Inspector, waterworks. 1 $800 00 

Inspector, street. 1 $4 00 per day 

Inspector, building. 1 $500 00 

Inspector, meter. 1 960 00 

Inspector, assistant meter. 1 840 00 

Inspector, member board of. 1 60 00 

Inspector, plumbing and sanitary. 1 1,500 00 

Inspector, sanitary. 1 720 00 

Inspector, watershed. 1 840 00 

LABOR SERVICE 

Foreman. 1 $960 00 

Foreman. 1 1,092 00 

Janitor. 1 360 00 

Janitors. 2 900 00 

LEGAL SERVICE 

Attorney. 1 $500 00 

Corporation counsel. 1 1,200 00 

Corporation counsel. 1 2,400 00 

Justices. 2 1,500 00 

Justice, police. 1 1,500 00 

Justice, police, acting. 1 $3 00 per day 

Justice, police, acting. 1 $5 00 per sitting 

MEDICAL SERVICE 

Health officer. 1 $800 00 

Health officer. 1 1,000 00 

Health officer. 1 1,500 00 

Nurse. 1 1,200 00 


[ 112 ] 











































Standardization of Public Employments 113 


Table V — Continued 
MISCELLANEOUS SERVICE 


TITLE 

Assessor. 

Treasurers, board of trustees 
Building commissioner. 


POLICE SERVICE 

Captain. 

Captain. 

Captain. 

Captains. 

Captains. 

Captains. 

Captain. 

Chief. 

Chief. 

Chief. 

Chief. 

Chief. 

Chief. 

Chief. 

Chiefs. 

Chief. 

Chief. 

Lieutenant. 

Lieutenant. 

Lieutenant. 

Officers. 

Officers. 

Officers. 

Patrolman. 

Patrolmen. 

Patrolmen. 

Patrolman. 

Patrolmen. 

Patrolmen. 

Patrolmen. 

Patrolmen. 

Patrolman. 

Patrolmen. 

Patrolmen '. 

Patrolmen. 

Patrolmen. 

Patrolmen. 

Patrolmen. 

Patrolmen. 

Sergeant. 

Sergeant. 

Sergeant. 

Sergeant. 

Sergeant. 

Sergeant. 

Sergeants. 

Sergeants. 

Special officer. 


Number 


•er 


Salary 

1 


$1,000 00 

2 


1,200 00 

1 


500 00 

1 


$960 00 

1 


1,060 00 

1 


1,125 00 

3 


1,200 00 

2 


1,300 00 

2 


1,320 00 

1 


1,500 00 

1 

$3 50 per day 

1 

3 75 per day 

1 


$960 00 

1 


1,020 00 

1 


1,080 00 

1 


1,200 00 

1 


1,320 00 

3 


1,500 00 

1 


1,600 00 

1 


1,800 00 

1 


1,100 00 

1 


1,140 00 

1 


1,200 00 

9 


900 00 

5 


986 00 

6 


1,000 00 

1 


480 00 

2 

$2 50 per day 

2 


$780 00 

1 


832 00 

10 


840 00 

16 

$3 00 per day 

6 

$75 

per month 

13 


$900 00 

1 


936 00 

8 


950 00 

18 


960 00 

2 


1,000 00 

16 


1,020 00 

1 


1,080 00 

2 


1,095 00 

26 


1,100 00 

1 

$3 

00 per day 

1 

3 

25 per day 

1 


$1,020 00 

1 


1,100 00 

1 


1,104 00 

1 


1,150 00 

3 


1,200 00 

2 


1,300 00 

1 

$3 

00 per day 





















































114 Report of Senate Committee on Civil Service 


Table V — Concluded 
SKILLED LABOR SERVICE 


TITLE Number 

Chauffeur. 1 

Chauffeur. 1 

Chief engineer, fire department. 

Chief engineer, water commission. 1 

Engineer. 1 

Engineers. 2 

Engineers, assistant. 2 

Engineer, assistant and fireman. 1 

Fireman. 1 

Firemen. 3 

Fireman. 1 

Operator, W. W. 1 

Superintendent, F. A. T. 1 


Salary 

$1,092 00 
1,200 00 


1,080 00 
1,200 00 
Vacant 
$900 00 
900 00 
Vacant 
$720 00 
780 00 
1,200 00 
900 00 

















TABLE VI 


Standardization of Public Employments 


115 


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STATE OF NEW YORK 

> } > 

A f k f v ^ 1 

REPORT 

OF THE 

Committee on Civil Service 

OF THE 

Senate of the State of New York 

ON 

Pension and Retirement Funds 








CLINTON T. HORTON, Chairman 
GEORGE F. ARGETSINGER 
JAMES A. HAMILTON 
IRVING J. JOSEPH 
HENRY M.SAGE 
GEORGE F. THOMPSON 
J. HENRY WALTERS 


TRANSMITTED TO THE LEGISLATURE JANUARY 3, 1917 


ALBANY 

J. B. LYON COMPANY, PRINTERS 
1917 








i 



State of New York 

No. 30. 


IN SENATE 

January 3, 1917. 


Report of the Senate Committee on Civil Service 
on Pension and Retirement Funds 


STATE OF NEW YORK 


Albany, January 3, 1917. 

To the Honorable, the President of the Senate: 

Sir. — The Senate Committee on Civil Service has the honor 
to submit in accordance with the provisions of resolution of Feb¬ 
ruary 16, 1916, its report on Retirement and Pension Funds of 
the State and its various subdivisions. 

Very respectfully yours, 

CLINTON T. HORTON, 

Chairman . 









TABLE OF CONTENTS 

PAGE 

Resolution adopted February 16, 1915. 7 

Reasons for Pension Funds. 7 

Data on Pension and Retirement Funds. 9 

Similar reports. lO 

Legislation in 1916. 10 

Indian Annuities and Militia Pensions. 11 

Present Retirement Funds for Civil Service Employees of State. 12 

Banking Department. 12 

State Hospital Employees’ Retirement Fund. 12 

Teachers’ Retirement Fund. 12 

Supreme Court Employees’ Retirement Fund. 13 

Methods of Financing and Income. 13 

Recommendations as to Future Action. 14 

[5] 




































REPORT ON PENSION AND RETIREMENT FUNDS 


Resolution Adopted February 16, 1915: 

" Resolved , That the Committee on Civil Service be, and the 
same is hereby requested to ascertain and report to the Senate all 
pensions and service allowances made after service is terminated 
under existing statutes, whether the same be chargeable upon the 
State at large or a subdivision thereof, with as full detailed in¬ 
formation as may be practicable, of the amounts of such charges. 

Resolved, further, That the said Committee report to the Sen¬ 
ate what further applications are pending for such allowances 
through bills introduced in the Legislature, and so far as possi¬ 
ble, the expense that would result from enacting the bills into law. 

Resolved, further, That the said Committee make such recom¬ 
mendations as to the policy of the State in relation to such pen¬ 
sions, present or prospective, as in their judgment the present 
condition of the State Treasury and the local treasuries charged 
therewith requires.’ 5 

Pursuant to this resolution, the Senate Committee on Civil 
Service at once began to assemble data concerning the various 
pension and retirement funds in the State, but owing to the pres¬ 
sure of other matters demanding immediate attention, it was 
unable to make its report until this year. 

It is believed by the Committee that the import of the last 
clause of the resolution was not thoroughly appreciated by the 
Senate. The volume of work necessary to make detailed recom¬ 
mendations as to the future policy of the State in relation to its 
pension funds was too great to be undertaken by this Committee 
with its scant appropriation and, as the problem is essentially an 
actuarial one, the present personnel of the staff was not equipped 
in any way to undertake the work. 

Reasons for Pension Funds 

The motives prompting the establishment of pension funds are 
humane and philanthropic as well as economic. The necessity 
for providing for members of the police force of New York City 
was manifest about the middle of the last century. Total dis¬ 
ability by reason of injuries received on duty and consequent in¬ 
ability to exist without aid of some kind brought a realization to 

, [ 7 ] 


8 IIeport of Senate Committee on Civil Service 

the authorities that provision must he made to meet deserving 
eases of this sort. There is no question that compensation should 
he given to public employees injured while on duty and to de¬ 
pendents of those who are killed on duty, hut it is extremely un¬ 
likely that in the beginning anything was contemplated allowing 
the retirement of officials or employees in the prime of life and at 
the height of their efficiency after twenty years of service. 

The subject of pension and retirement funds has a very de¬ 
cided bearing on all employment problems. A just system of 
retirement is one of the factors which makes for an attractive ser¬ 
vice. This question has been receiving much thought from pri¬ 
vate employers in the United States since 1875, although little 
lias been accomplished until within the last five years. Some 
fifty-seven corporations and employers now have such systems in 
operation. 


Following is a fairly complete list of such private employers operating pension 
systems in 1915: 

American Brass Co., Waterbury, Conn. 

American Express Co., New York City. 

American Sugar Refining Co., New York City. 

American Telephone and Telegraph Co., New York City. 

Armour & Company, Chicago, III. 

Atchison, Topeka & Santa Fe Railway, Chicago, Ill. 

Baltimore & Ohio Railway, Baltimore, Md. 

Joseph Bancroft & Sons, Wilmington, Del. 

Blount Plow Works, Evansville, Ind. 

J. G. Brilll Co., Philadelphia, Pa. 

Brooklyn Rapid Transit, Brooklyn, N. Y. 

Cheney Bros., S. Manchester, Conn. 

Cincinnati Suburban Telephone Co., Cincinnati, Ohio. 

The Crane Co., Chicago, Ill. 

Cumberland Mills, Westbrook, Ale. 

Deere & Co., Moline, Ill. 

I. E. Du Pont de Nemours Powder Co., Wilmington, Del. 

The Equitable Life Assurance Society, New York City. 

First National Bank of Chicago, Chicago, Ill. 

General Electric Company, Schenectady, N. Y. 

General Fire Extinguisher Co., Providence, R. I. 

B. F. Goodrich Co., Akron, Ohio. 

Gorham Manufacturing Co., Providence, R. I. 

F. C. Huyck & Sons. Albany, N. Y. 

International Harvester Co., Chicago, III. 

Lehigh Valley Transit Co., Allentown, Pa. 

The Midvale Steel Co. 

Morris & Company, Chicago, Ill. 

Murphy Varnish Co., Newark, N. J. 

National City Bank, New York City. 

New York Central Lines, Cleveland, Ohio. 

New York, Chicago & St. Louis Railroad Co., Cleveland, Ohio. 

New York, New Haven & Hartford Railroad Co., New Haven, Conn. 

New York Railways Company, New York City. 


Pension and Retirement F ends 


9 


North Star Mines Co., New York City. 

Pennsylvania Railroad Company, Philadelphia, Pa. 

Pittsburgh Coal Co., Pittsburgh, Pa. 

Prudential Insurance Company of America, Newark, N. J. 

Public Sendee Corporation of New Jersey, Newark, N. J. 

The Pullman Co., Mfg. Dept., Pullman, Ill. 

The Rhode Island Co., Providence, R. I. 

Simonds Mfg. Co., Pittsfield, Mass. 

Standard Oil Co., Neodesha, Ivans. 

Talbot Mills, North Dillerica, Mass. 

Chas. H. Tenny & Co., Boston, Mass. 

I nited States Steel & Carnegie Corporation, New York City. 

The Van Brunt Mfg. Co., Noricon, Wis. 

Vermont Marble Co., Proctor, Vt. 

The Virginia Bridge & Iron Co., Roanoke, Va. 

Y ashington Railway and Electric Co., Washington, D. C. 

Yells Fargo & Co., Chicago, Ill. 

Y estern Electric Company, New York City. 

Y'estinghouse Airbrake Co., Pittsburgh, Pa. 

J. H. Williams Co. 

Winchester Repeating Arms Co., New Haven, Conn. 

Delaware & HudsPn Railroad Company. 

Baltimore, Rochester & Pittsburgh Railroad Co. 

The growth of this movement in private industry in recent 
years is an indication that the establishment of such systems is 
regarded in the modern industrial world as sound business, and 
not merely philanthropy. The question of superannuation is one 
linked with the study of efficiency in any service. Reduced to 
its simplest terms, a retirement and pension fund is an insurance 
guaranteeing against want in old age and providing for depend¬ 
ents in case of death while in service or after retirement. Employ¬ 
ment with such guaranties is, of course, much more attractive 
than without them and the question of an adequate retirement 
system is one which ultimately the State must meet and solve with 
justice to the individual and to the public. The examination of 
systems in operation should determine not only whether the plans 
are financially sound, but also whether they are accomplishing 
the desired results and distributing the benefits in proportion to 
the service rendered by the individuals and whether the beneficia¬ 
ries are doing their part in the maintenance of the funds. 

DATA ON PENSION AND RETIREMENT FUNDS 

The data assembled in the tabulations made a part of this 
report show the original laws with the sources of revenue, the 
personnel of the boards of trustees, the various beneficiaries and 
the benefits derived from the original statutes and from amend¬ 
ments. In the financial operations all receipts, expenditures and 


10 Report of Senate Committee on Civil Service 

balances are shown for such periods as the somewhat chaotic con¬ 
dition of the accounts permits. With one or two exceptions, the 
operations of all the funds are brought down to December 31, 
1015. A careful study of the tabulations will show that the same 
general tendencies obtain in all of these funds throughout the 
State. • , I 

Similar Reports 

The Commission on Pensions of the City of Hew Pork has 
recently issued a most valuable report upon all of the pension 
systems effective there. This includes detailed studies of the 
Policemen's Retirement and Pension Fund founded in 1857, the 
Fire Department Relief Fund founded in 1871, the Teachers’ 
Retirement Fund, the Health Department Pension Fund, the 
College of the City of Hew York Retirement Fund, the City of 
Hew York Employees’ Retirement Fund (Grady), the Depart¬ 
ment of Street Cleaning Relief and Pension Fund, and the Retire¬ 
ment Funds of the Supreme Court, First and Second Depart¬ 
ments. All of these funds were established by the legislature of 
this State and there is no reason to suppose that the conditions of 
Hew York City are different from those in the cities of other parts 
of the State except in their magnitude and in that being older, 
they have had more opportunity to work themselves to their logi¬ 
cal ends. 

The Commissioner of Finance and Accounts of the City of 
Buffalo has very recently reported to the Council that sound 
finance requires the addition of nearly five million dollars to the 
Policemen’s and Firemen's Pension Funds in that city. A report 
recently made upon the government of the City of Rochester by 
the Rochester Bureau of Municipal Research indicates the same 
general condition there, although not to so marked a degree. 

Legislation in 1916 

Du ring the last session of the Legislature a statute was passed 
retiring on one-half pay, with a maximum pension of $1000, 
veterans of the Civil War who had been in the service of the 
State in civil positions for ten consecutive years or more, and who 
had reached the age of seventy years. Ho appropriation was made 
for the pensions thus created, which however, might have been 


Pension and Retirement Funds 


11 


paid with one-lialf the salary appropriated for the positions 
vacated, if it were possible to employ others on the remaining one- 
half of the salary to fill such positions. The records of the Com- 
troller’s office on December 1 , 1916, show that there have been 
only six retirements under this act, without 'pensions. 

Indian Annuities and Militia Pensions 

Indian Annuities. —Included in the investigations of this Com¬ 
mittee are two funds which are entirely independent of the civil 
service of the State, namely, Indian Annuities and Militia Pen¬ 
sions. Indian annuities date from 1797 and are based on treaties 
with Indians. In 1797 the amount of these annuities aggregated 
$11,765.51. Annuities and expenses increased gradually from that 
time until 1841, in which year the annuities to tribes amounted 
to $11,426.41, incidental expenses to agents and attorneys 
amounted to $27,111.15, a total of $39,289.23 for that year. 
From 1841 to and including 1912, the annuities ranged from eight 
to two thousand dollars, since which year the total annual annui¬ 
ties have been $35,694.34, $19,942.99, $19,142.42, for nine 
months of 1915, $19,330.51, and for four months of 1916, 
$5,700.25. The aggregate of these annuities since 1797 is 
a pproximately $1,500,000. 

Militia Pensions. — Militia pensions date from 1887. These 
are pensions granted to members of the State militia injured in 
service or to their dependents after their death, from injuries re¬ 
ceived in service. In 1887 nine pensions aggregating $1,062 were 
allowed. The maximum number of pensions paid was thirty-seven 
in 1913, aggregating $9,706.56. The total cost to the State on 
these militia pensions has been, up to December 31, 1915, $169,- 
318.28. 

The Laws of 1916, chapter 470, amend the law to read as 
follows: 

“ Members of the militia, wounded or disabled in the service 
of the State in cases of riot, breach of the peace, resistance of 
process, invasion, insurrection or imminent danger thereof, or 
whenever called upon in aid of civil authorities, shall be taken 
care of and provided for at the expense of the State and any 
member who has been so disabled as above or while engaged in 
any parade, drill, encampment or inspection, shall, upon proof, 



12 Report of Senate Committee on Civil Service 

be placed on the roll of invalid pensioners of the State, and shall 
receive a like pension as under the United States, and if he dies, 
the widow, minor children or dependent mother shall receive such 
pension.' 5 

The Laws of 1916, chapter 609, add section 219-a to the Mili¬ 
tary Law, as follows: 

“Any officer in the national guard or naval militia who has been 
a commissioned officer in active service for twenty-five years and 
who for fifteen years, active service, immediately preceding retire¬ 
ment, received a salary for performing military or naval duty, 
and has been dependent on such compensation for support, shall 
receive annually from date of retirement on reaching sixty-four 
years of age, on own application, and during time he remains on 
retired list, 75 per cent, of annual compensation paid him at date 
of retirement/' 

PRESENT RETIREMENT FUNDS FOR CIVIL EMPLOYEES OF STATE 

Banking Department 

Laws of 1914, chapter 369, section 16, provides for retirement 
on one-half pay, of deputies, clerks and examiners who have served 
twenty years in the Banking Department and have become physi¬ 
cally or mentally incapacitated. Payment to be made out of funds 
“ appropriated to the department." To date, there have been no 
benefits given through this act. 

State Hospital Employees’ Retirement Fund 

This fund was established in 1912. Details of administration 
have been worked out with care but no expert actuarial study was 
made before the establishment of the fund. Detailed information 
as to this fund will be found in the tables. 

Teachers Retirement Fund 

Under the provisions of the law, there have been a State 
Teachers’ Retirement Fund and a Teachers 5 Retirement Fund 
covering various cities and counties of the State. Under the later 
provisions of the law, however, many of these local funds have 
been transferred to the State fund. Local funds now operating 
independently of the State fund are found analyzed with the other 
funds in the cities of Albany, Buffalo, Cohoes, Mount Vernon, 
FTew York City, Rochester, Troy and Westchester county. 


Pension and Retirement Funds 


13 


The State fund has been administered very carefully and is 
upon the most satisfactory basis of all the systems analyzed. 

Supreme Court Employees' Retirement Fund 

The Laws of 1911, chapter 855, provided for the retirement of 
clerks, assistant clerks, stenographers, librarians and attendants of 
the Appellate Division, First Department, or the Supreme Court, 
First Judicial District, or any court consolidated therewith, after 
twenty-five years of service, and upon physical or mental incapa¬ 
city ; payments to be fixed by Appellate Division, to continue for 
life, and in no case to exceed one-half salary. The law was 
amended so that the above may be retired from the Appellate Divi¬ 
sion, First Department, or the Supreme Court, First Judicial 
District, or any court consolidated therewith, after twenty years of 
service, for physical or mental disability, or after twenty-five years 
of service on own application. Pensioners must have contributed 
1 per cent, of salary to fund. In 1913, an amendment was passed, 
bringing in employees of the Supreme Court, Second and FTinth 
Judicial Districts, or the Second Department, and in 1914 an 
amendment bringing in employees of the Third and Fourth De¬ 
partments of the Appellate Division was passed. These latter are 
required to contribute 1 per cent, of salary. The law was amended 
in 1915 to include honorably discharged soldiers and sailors of 
the Civil War who have reached seventy years of age and have 
served continuously in these capacities for fifteen years. The fund 
is also augmented by budget appropriations for pensions for Su¬ 
preme Court. 

Methods of Financing and Income 

The following observation of the Commission on Pensions of 
Hew York City 1 upon conditions there, applies to the establish¬ 
ment of practically every retirement system throughout the State: 

“ Lack of knowledge of the extent of future obligations and 
oblique methods of financing fund requirements were the 
main characteristics in the establishment of the city’s pension 
fund. 

A rough guess was first made of the probable amounts re¬ 
quired to meet currently maturing pension claims for a few 
years ahead. The next step was to assume that these 


1 Part I, pp. 50, 51. 



14 Repoet of Senate Committee on Civil Service 

demands would remain stationary forever thereafter or, at 
worst, increase in equal ratio with the annual payroll. The 
goal of the procedure was to secure an income preferably 
through the automatic diversion to the fund of more or less 
obscure miscellaneous city revenues. In the selection of 
such revenues care was generally taken that the proceeds 
would net some margin of safety over and above the guessed 
annual pension demands. 

While the whole procedure deserves condemnation, its 
principal fallacy is the optimistic expectation of a stationary 
or only slightly increasing future pension charge. The per¬ 
sistence in this misconception, even to the present day, is 
unfortunate and surprising. It continues to lay the founda¬ 
tion for future disaster or newly established funds and greatly 
handicaps the introduction of sane methods of financing pen¬ 
sion systems. 7 ’ 

It is evident from a most cursory examination of the tables in 
this report that none of these pension funds was established with 
any regard for actuarial principles; that with the single exception 
of the Teachers’ Retirement Fund, those in operation for more 
than a few years are drawing more and more heavily from the 
public from year to year and that the financial condition of them 
all will undoubtedly grow less satisfactory as the number of bene¬ 
ficiaries increases. In other words, in practically every case, the 
“ future disaster ” referred to in the above report cannot long be 
delayed unless drastic action is taken. 

Recommendations as to Future Action 

As has been indicated, this Committee has not had the funds 
nor the working staff to make an intensive study of these pension 
systems, and an actuarial investigation of the funds now in exist¬ 
ence, similar to that conducted by the Commission on Pensions in 
New York must be made before any definite constructive pro¬ 
gram is suggested. The Committee recommends that before any 
new pension legislation is attempted, such an investigation be had 
in order that the present funds, as well as any added funds which 
the State may provide in the future, may be put upon a sound 
financial basis. 


Pension and Retirement Funds 


15 


LOCAL ACTS RELATIVE TO PENSIONS 

Albany 


Firemen. 

1914, ch. 285. 

. L. 1916, ch. 324, § 5 

Policemen. 

1899, ch. 554. 


1903, ch. 174. 



1907, ch. 341. 



1911, ch. 78. 


Teachers. 

1907, ch. 414. 



1910, ch. 451. 


Auburn 


• 

Firemen. 

1906, ch. 185, § 118. 

. L. 1915, ch. 541 

Policemen. 

1906, ch. 185, § 64. 


Binghamton 

1910, ch. 593, § 64. 


Firemen. 

1912, ch. 403... 


Policemen. 

1915, ch. 268. 


Buffalo 

Firemen. 

1914, ch. 217, § 277. 



1915, ch. 276. 

. 1918, ch. 260, § 277 

Policemen. 

1914, ch. 217, § 264. 

. 1916, ch. 260, § 264 

Teachers. 

1914, ch. 217, § 295. 


Note:—-The following laws relate to pensions in Buffalo and have not been sped- 

ficaliy repealed but are probably superseded by L. 1914, 

ch. 217. 


1889, ch. 325 

1902, ch. 551 


1891, ch. 105, § 211 

1901, ch. 395 


1891, ch. 105, § 267 

1905, ch. 181 


1895, ch. 137 

1910, ch. 255 

• 

1897, ch. 374 (private) 

1911, ch. 849 

1897, ch. 161 

1911, ch. 487 


1897, ch. 727 (private) 

1898, ch. 144 (private) 

1912, ch. 193 


1899, ch. 702 

1914, ch. 231 

Cohoes 

1901, ch. 584 

1914, ch. 292 

Teachers. 

1908, ch. 332. 


Elmira 

Firemen. 

1906, ch. 477, § 184 



1910, ch. 662, § 18. 


T > nHr*pmpn . 

1900, ch. 525. 



1910, ch. 468. 



1912, ch. 529. 


Teachers. 

1907, ch. 86. 

. (Merged with State Fund) 


Fulton 

Policemen. 1916, ch. 455 

Firemen. 1916 ch. 456. 












































10 


Report or Senate Committee on Civil Service 


Geneva 

Policemen. 1911, ch. 391. 

1916, ch. 288. 

Jamestown 

Policemen. 1916, ch. 292. 

Kingston 

Policemen. 1909, ch. 532, § 2 

1910, ch. 647, § 14 

1915, ch. 611. 

Firemen. 1915, ch. 611, § 31 

Lockport 

Firemen. 1916, ch. 429. 


Mt. Vernon 

Firemen. 

Policemen. 

Teachers and other em¬ 
ployees of the board of 
education. 

Nassau County 

Teachers. 


1914, ch. 432. 

1902, ch. 375; am. by 
1904, ch. 459.... 


1909, ch. 92. 
1913, ch. 44. 

1910, ch. 407 

1911, ch. 692 


(Merged with State Fund) 


Newburgh 

Policemen. 1907, ch. 205. 

1915, ch. 205. 

New Rochelle 

Firemen. 1910, ch. 559, § 348 

Policemen. 1904, ch. 268. 

1910, ch. 559, § 330 

New York City 

Firemen. City charter. (Laws 1897, ch. 378 as 

reenacted by Laws 1901, 
ch. 466), §§ 188, sub. 10, 
789, 790 

1904, ch. 577. 

1907, ch. 639. 

1911, ch. 34. (Private) 

1912, ch. 457. 

Policemen. City charter, §§ 351-357. 

1885, ch. 486. (° Cities having a popula- 

1897, ch. 378. tion of over one mil¬ 

lion ”) 

1903, ch. 437. 

1904, ch. 512. 

1904, ch. 626. 

1905, ch. 516. 










































Pension and Petirement Funds 


IT 


New York City — Concluded 
Policemen. 


Teachers 


Health department em¬ 
ployees . 


1907, ch. 445. 

1909, ch. 585....... 

1914, ch. 460. 

City charter, § 1092 

1901, ch. 186 

1902, ch. 530 

1903, ch. 177 
1905, ch. 107 


(Private) 

1905, ch. 661 
1907, ch. 167 
1909, ch. 505 
1914, ch. 476 
1914, ch. 479 


City charter, §§ 1319— 
1324. 


1907, eh. 373. 

1907, ch. 644. 

Street cleaners. 1911, ch. 839. 

Municipal employees (ex¬ 
cept firemen, policemen, 

teachers, health depart¬ 
ment employees and in¬ 
structors in the college 

of the City of New York) 1905, ch. 583. 

1911, ch. 669. 

1912, ch. 479. 

1916, ch. 201. 

Municipal court justices. . 1911, ch. 846. 

1913, ch. 724. (Not strictly pensions but 

to serve as official ref¬ 
eree for life at a salary 
of $5,000.) 

Niagara Falls 

Firemen. 1904, ch. 300, § 306. 

1908, ch. 260, § 6. 1916, ch. 530, § 167 

Policemen. 1906, ch. 613. 1916, ch. 530, § 141 

City electrician. 1911, ch. 645, § 18. 


North Tonawanda 

Firemen. 1903, ch. 38. (Not primarily pension, 

1906, ch. 37. but an association re¬ 

ceiving public funds, 
among whose powers is 
probably that of giving 
pensions.) 

Oswego 

Firemen and policemen... 1915, ch. 575- 


Olean 

Firemen. 1914, ch. 436, § 205. 

Policemen. 1914, ch. 436, § 205. 

(Referendum to people lost) 

































18 Report of Senate Committee on Civil Service 


Port Chester 


Policemen. 

. 1912, ch. 295. 

1914, ch. 24. 


Poughkeepsie 

Policemen. 

. 1907, ch. 613. 

1911, ch. 655. 


Teachers. 

. 1902, ch. 227. 

. . . (Merged with State Fund) 

Rensselaer County 

Firemen. 

. 1913, ch. 609. 


Rochester 

Firemen. 

. 1907, ch. 755, § 336.... 

1911, ch. 70. 

1912, ch. 54. 

1908, ch. 358, § 6. 

1912, ch. 54. 


Policemen. 

. 1907, ch. 755, § 335.... 

1912, ch. 58. 

1908, ch. 338, § 5. 

1912, ch. 58. 

. . 1916, ch. 486, § 6 

Teachers. 

. 1907, ch. 755, § 405.... 


Rome 

Policemen. 

. 1909, ch. 321. 


Saratoga County 

Teachers. 

Schenectady 

. 1910, ch. 191. 

. . (Merged with State Fund) 

Firemen. 

. 1907, ch. 182. 

1911, ch. 379. 


Teachers. 

. 1907, ch. 306. 

1908, ch. 116. 

.. (Merged with State Fund) 

Policemen. 

. 1907, ch. 183. 



Syracuse 

Firemen. 1905, ch. 683, § 6-12 

Policemen. 1892, ch. 509. 

1902, ch. 537. 

1905, ch. 683, § 1-5.. 

1911, ch. 372. 

Teachers. 1897, ch. 750. 

Troy 

Firemen. 1905, ch. 488. 

1907, ch. 266. 

Policemen. 1904, ch. 617. 

1910, ch. 257. 

Teachers. 1906, ch. 305. 






















































Pension and Retirement Funds 


19 


Utica 

Firemen. 1907, ch. 161. 

1912, ch. 345. 

Policemen. 1908, ch. 393. 

1903, ch. 316. 

Watertown 

Policemen. 1907, ch. 258. 

1915, ch. 533. 

Firemen. 1915, ch. 538. 

Westchester County- 

Firemen. 1913, ch. 150. 

Teachers. 1909, ch. 431. 

1911, ch. 23. 

1914, ch. 356. 

White Plains 

Policemen. 1911, ch. 666. 

1913, ch. 661. 

1915, ch. 356. 

Yonkers 

Firemen. 1908, ch. 452, art. 12. 

1912, ch. 308. 

.... 1908, ch. 452, art. 11. 

.... 1908, ch. 452, art. 9, § 18. 

.... 1913, ch. 87. • 

(Teachers fund merged with State Fund) 


Policemen. 

Teachers. 

Municipal employees 






























20 


Report of Senate Committee on Civil Service 


GENERAL LAWS RELATIVE TO PENSIONS 

(This is not an exhaustive table but it is believed that it contains all the important 

local statutes of the State upon the subject.) 

Militia pensions 

Military Law (Cons. Law, ch. 36), secs. 220-222. 

L. 1916, ch. 470; L. 1916, ch. 609. 

Second class cities pensions 

Second Class Cities Law (Cons. Law, ch. 53), sec. 140. 

Indian annuities 

Indian Law (Cons. Law, ch. 26), sec. 20. Refers to annuities 
paid Indians under treaties. These treaties are also re¬ 
ferred to but not set out in L. 1792, ch. 63; 1847, ch. 178; 
1849, ch. 355; 1869, ch. 635; 1889, ch. 473; 1909, ch. 255 and 
1913, ch. 778. 

Banking department 

L. 1914, ch. 369, sec. 16. 

State hospital employees 

L. 1912, ch. 59; L. 1915, ch. 276; L. 1916, ch. 607. 

Teachers’ retirement 

Education Law, article 43-a (as amended by L. 1912, ch. 393), 
article 43-b (as amended by L. 1914, ch. 44). 

L. 1915, ch. 614. 

Supreme Court employees 

L. 1911, ch. 855; L. 1912, ch. 486; L. 1913, ch. 138; L. 1914, 
ch. 497. Provide for first department. 

L. 1913, ch 185. Provides for second department. 

L. 1914, ch. 511. Provides for third and fourth departments. 

L. 1915, ch. 557. Provides for veterans of Civil War. 

City pensions 

L. 1913, ch. 247. Authorizes any city to provide and administer 
funds for pensions and annuities to officers and employees. 

L. 1914, ch. 444, sec. 48. Provides for administration of such 
funds under commission form of government. 

Volunteer firemen’s pensions 

General Municipal Law (Cons. Law, ch. 24), sec. 205, amended 
by L. 1914, ch. 400, provides a pension if incapacitated in 
duty, at same rate as pensions of paid fire department of 
same city; lump sum if city has no pension fund. On death, 
pension paid to relatives, etc. 


Pension and Retirement Funds 


21 


Legal authorization 

Con. Laws, ch. 29, sec. 
25. 

L. 1911, ch. 229. 

L. 1905, ch. 204. 


L. 1906, ch. 186 

L. 1908, ch. 379 
L. 1911, ch. 844 

L. 1911, ch. 62. 

L. 1913, ch. 722 


L. 1913, ch. 724 


RETIREMENT OF JUDGES 

Analysis of law 

Provides for payments of one-half salary to any judge on re¬ 
moval for any cause not including moral delinquency, 
maximum $3,000. Same to continue until end of term or 
until death or 70 years of age, if before end of term. 

Court of Appeals judges, after retirement because of age limit, 
may become, by signifying their willingness to the Gov¬ 
ernor, referees in civil actions wherein the State is a party 
or the Attorney-General is authorized to appear or prosecute* 
or defends. Salary, $6,000. 

Provides for appointment of judges of first department, Appel¬ 
late Division, now or hereafter in office, of twenty years or 
more service in courts of record, who shall at 65 or over 
have retired by expiration of term or resignation or by age 
limit of 70 years, as official referees for life, to hear cases 
in which the justice making the order shall deem expense 
should not be borne by parties. Salary to be same as 
supreme court judges, to be paid by New York county. 
Disbursements by parties if court so directs. 

Authorizes referee to select stenographers, to be paid by New 
York county at ten cents per folio. 

Makes changes (immaterial) in compensation. 

Extends provisions of Laws 1915, chapter 204, to former judge 
or judges. 

Extends provisions of Laws 1905, chapter 204, to any former 
judge of the Court of Common Pleas and justice of Supreme 
Court, who shall have served as such judge or justice for 
eight years or more in the first judicial district and who 
after such service retired before the expiration of his term 
because he has arrived at the age of 70 years. 

Provides for appointment of any justice or former justice of 
the city court or New York city, who shall have served as 
justice for sixteen years or more and w T ho shall have retired 
by reason of resignation or expiration of term, as official 
referee in the first department of the Appellate Division, 
to hear any matter in Supreme Court, Surrogate’s Court, 
or City Court, where the expense is not to be borne by the 
parties. Salary same as Supreme Court judges, to be borne 
by county of New York. 

Provides for appointment of judges of Municipal Court of 
City of New York, as official referees, after twenty years 
service, no age requirement. Salary to be paid from Munic¬ 
ipal Court of Manhattan. 

(This analysis appears under the New York City Retirement 

Funds) 










22 Report of Senate Committee on Civil Service 


Retirement of Judges — Concluded 


Legal authorization Analysis of law 

L. 1912, ch. 323.Extends provisions of statute to second department, with 


same requirements as to age, length of service, etc. Same 
salary as first department, to be charged back to counties 
of the second department. 

L. 1915, ch. 270.Appellate Division may appoint as official referee a justice of 

the City Court of New York, who has held office sixteen 
years or more and who shall retire, at $7,500 per year. No 
fees to be paid as referee except disbursements. Official 
stenographer to act with no charge to parties. 


L. 1915, ch. 224.Fixes fees of stenographer at ten cents per folio, to be paid 

by county of New York, if in first department, or by county 
where action is brought, if in second department. 

L. 1916, ch. 262.Amends official referee act by including justices of the third 


and fourth departments and adding any former judge of 
the Court of Common Pleas and justice of the Supreme 
Court, who shall have served as such judge or justice for 
twenty-eight years or more in the first judicial district and 
who has reached the age of 70 years. Adds to conditions 
“ who has served not less than tw r enty-five years in a court 
of record of which fourteen years w y as in the Supreme Court.” 
Provides for compensation, that County of New York shall 
pay to referees of the first department, that Comptroller 
shall pay referees of second department and charge back 
to the counties. Comptroller shall pay referees of the third 
and fourth departments an amount equal to two-thirds of 
the salary of referees of the first department. 

Linder these statutes, the following former judges of the Court of Appeals qualified 
and are now acting as official referees: 

Albert Haight. 

Irving G. Vann. 

John Clinton Gray. 

And the following in the Appellate Division: 

First department: Henry A. Gildersleeve. 

John J. Freedman. 

Roger A. Pryor. 

Abraham R. LawTence. 

Second department: Josiah T. Marean. 

William B. Dickey. 

Fourth department: Pardon C. Williams. 






Pension and Retirement Funds 


23 


ANALYSIS 

Legal authorization 
L. 1911, ch. 855. 


L. 1912, eh. 486 


L. 1913, ch. 13S 


L. 1914, ch. 497 


OF SUPREME COURT EMPLOYEES’ 
RETIREMENT FUND 

Analysis of law 

Appellate Division, first department, may retire a clerk, 
assistant clerk, stenographer, librarian, attendant of the 
Supreme Court, first judicial district, or any court con¬ 
solidated with it, upon physical or mental incapacity after 
service of twenty-five years at annual payments to be fixed 
by the Appellate Division, not to exceed one-half salary. 
Payments to continue for life. 

Adds to beneficiaries any one who has had charge of the records 
of any such court in the office of the clerk of New York 
county. Changes the time of service to fifteen years in one 
or more of above positions and ten years or more con¬ 
tinuously in one or more of such positions or in any depart¬ 
ment or office of the State, County or City of New York. 

Changes time of service above from fifteen years to twelv e 
and one-half years, and twelve and one-half years or mor e 
continuously in one or more of such positions, etc. 

Adds section 2: 

Any one employed for twelve and one-half years in the Su¬ 
preme Court and twelve and one-half years in any other 
court, department or office of the State, County or City, 
and thirty years’ aggregate service, shall be retired upon 
his own application, but must contribute one per cent, of 
his salary and signify his intention in writing to take advan¬ 
tage of act. 

Appellate Division, first department, may retire any clerk, 
assistant clerk, clerk to justice, stenographer, typewriter, 
interpreter, librarian, assistant librarian, assistant crier, 
telephone operator or attendant who shall have served as 
such in the Appellate Division, first department, or Supreme 
court, first district, or any court consolidated with it, or as 
appointee of a justice or court, or who has had charge of 
the records of any such court in the County Clerk’s office 
of New York County, who becomes physicially or mentally 
incapacitated for further performance of his duties, after 
twenty years of service or ten years’ continuous service in 
one or more of the above positions and shall have served in 
one or more positions in court, State, County or City service, 
or as appointee of justice or court, for twenty years alto¬ 
gether. Annuity fixed by Appellate Division, not over 
one-half average annual salary for two years preceding re¬ 
tirement, for life, in monthly payments. 

Section 2. Any of above who shall have served as such in 
Appellate Division, first department, or Supreme Court, 
or any court consolidated with Supreme Court, first district, 






24 Refort of Senate Committee on Civil Service 


Analysis of Supreme Court Employees’ Retirement Fund — 

Concluded 

Legal authorization Analysis of law 

or appointee, etc., as above, for twenty-five years or for 
twelve and one-half years’ continuous service in one or more 
of above positions and shall have served in one or more 
positions in court, State, County or City service, or as ap¬ 
pointee of judge or court, for twenty-five years altogether, 
shall, on his own application, be retired on the same terms. 

Any one, who after twenty years, loses his position without 
fault or misconduct, shall be retired as of date of loss of 
position, provided he makes application for reinstatement 
within one month after this act takes effect and shall be 
awarded as many twenty-fifths of one-half average salary 
as he has served years in the aggregate. Payments of above 
to be made out of funds for department and applicant 
must signify in writing, intention to take advantage of stat¬ 
ute. Comptroller is custodian of fund. 

L. 1913, ch. 185.Adds section 117 to Judiciary Law, as follows: 

Any clerk, assistant clerk, stenographer, interpreter, librarian 
or attendant in the Supreme Court in the second or ninth 
judicial districts or any court consolidated with the Supreme 
Court, may be retired by the court for physical or mental 
incapacity after service of twenty-five years or more, on 
annuity not to exceed one-half annual salary as determined 
by average salary for two years immediately preceding re¬ 
tirement. 

L. 1914, ch. 511.Adds section 118 to Judiciary Law as follows: 

Appellate Division in the third and fourth departments may, 
in discretion, retire any clerk, deputy clerk, consultation 
clerk of Appellate Division or stenographer of the Supreme 
Court of a district in the department, for physical or mental 
incapacity after twenty-five years’ service in any court, or 
fifteen years in Supreme Court, immediately preceding re¬ 
tirement, upon annuity not over one-half average salary 
determined by average salary for two years immediately 
preceding retirement. Present employees given ninety 
days within which to give notice that they wish to take 
advantage of act, in which event one per cent, is deducted 
from salary. Comptroller the custodian, who pays annuities 
out of treasury and charges it back to the counties of resi¬ 
dence of beneficiaries. 

L. 1915, ch. 557.Adds to retirement of court employees the following: 

Or any honorably discharged soldier or sailor of the Civil 
War, serving as such, who has reached 70 years of age and 
served continuously for fifteen years. 





Pension and Retirement Funds 25. 

STATE OF NEW YORK — RETIREMENT FUND, SUPREME COURT EM¬ 
PLOYEES, APPELLATE DIVISION, THIRD AND FOURTH DEPART¬ 
MENTS 

Balance Sheet, December 31, 1016 

Cash $2,668 22 Third judicial department. $129 68 

Fourth judicial department. 86 41 

Third judicial district. 350 98 

Fourth judicial district. 205 95 

Fifth judicial district. 481 16 

Sixth judicial district. 308 95 

Seventh judicial district. 395 13 

Eighth judicial district. 709 96 


$2,668 22 $2,668 22 


Operations 

Contributions. $158 66 

Interest on deposit.*. 37 87 


$196 53 





















26 


Report of Senate Committee on Civil Service 


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1916 , ch. 260 , All former funds and rewards, gifts or fees Council. 1. Widow of member or of engineer at head- Three hundred dollars 

sec. 264 . for special services, receipts from sales of quarters, linemen, employees in elec- per year as long as 

unclaimed property after one year, re- trical bureau, stenographer to clerk unmarried, or if to 

ceipts from sale of all unfit or unservice- of police, superintendent of electrical children, until 18 

able property except horses, not over $250 bureau, killed in performance of duty or years old. 





















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member; any person who has served twenty-five years, shall at his own request or at the option of commissioner, be retired then receive one-half salary. 





















ANALYSIS OF TEACHERS’ RETIREMENT FUND 


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Certificate of health physician required on all pensions for disability. 
















44 Repoet oe Senate Committee on Civil Seevice 


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PORT CHESTER —Concluded 

ANALYSIS OF POLICE PENSION FUND — Concluded 


58 


Report of Senate Committee on Civil Service 


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ROCHESTER—Concluded 

ANALYSIS OF FIREMEN’S PENSION FUND — Concluded 


60 


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6 . Deductions for loss of time and absence. 

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Note.— Trustees may terminate or diminish any pension to widow, children or dependent parents, whenever condition of fund or financial condition of 
recipient warrants it. Pensions to members first above provided, shall not be paid until the fund reaches at least $5,000, and none to one retiring upon his own 
application, without examination, until the fund has reached $20,000. 











68 


Report of Senate Committee on Civil Service 


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Prefatory Note to Table II 


In submitting the following financial tabulations, the committee 
wishes to comment on the responses to the requests for this in¬ 
formation. 

From some cities no response has been received to repeated in - 
quiries and in others the statements were so inaccurate as to be 
worthless. Requests for corrections have been ignored and the 
committee decided that such statements only as are accurate 
should appear. This explains the absence of statements of the 
funds of several cities, analyses of which appear in the first 
tabulation. 


[75] 



ALBANY FIREMEN’S PENSION FUND 


76 


Report of Senate Committee on Civil Service 


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